INTERAGENCY COUNCIL ON THE HOMELESS
AND THE DISTRICT OF COLUMBIA
HOMEL ESS INITIATIVE
Y 4. B 22/1: 103-83 =^=^^=— ^=
Interagency Council on the Honeless...
HEARING
BEFORE THE
SUBCOMMITTEE ON
HOUSING AND COMMUNITY DEVELOPMENT
OF THE
COMMITTEE ON BANKING, FINANCE AND
URBAN AFFAIRS
HOUSE OF REPRESENTATIVES
ONE HUNDRED THIRD CONGRESS
FIRST SESSION
OCTOBER 26, 1993
Printed for the use of the Committee on Banking, Finance and Urban Affairs
Serial No. 103-83
U.S. GOVERNMENTT PRINTING OFFICE
73-385 CC WASHINGTON : 1994
""••'•.4r<?g^u.a^^,
For sale by the U.S. Government Printing Olfice
Superintendent of Documents, Congressional Sales Office, Washington. DC 20402
ISBN 0-16-044223-0
INTERAGENCY COUNCIL ON THE HOMELESS
AND THE DISTRICT OF COLUMBIA
HOMEL ESS INITIATIVE
Y 4, B 22/1: 103-83 :
Interagency Council on the Honeless...
HEAKING
BEFORE THE
SUBCOMMITTEE ON
HOUSING AND COMMUNITY DEVELOPMENT
OF THE
COMMITTEE ON BANKING, FINANCE AND
URBAN AFFAIRS
HOUSE OF REPRESENTATIVES
ONE HUNDRED THIRD CONGRESS
FIRST SESSION
OCTOBER 26, 1993
Printed for the use of the Committee on Banking, Finance and Urban Affairs
Serial No. 103-83
- .-t
JUL 1
3»54
U.S. GOVERNMENT PRINTING OFFICE
73-385 CC WASHINGTON : 1994
For sale by the U.S. Government Printing OITice
Superintendent of Documents, Congressional Sales Office, Washington, DC 20402
ISBN 0-16-044223-0
HOUSE COMMITTEE ON BANKING, FINANCE AND URBAN AFFAIRS
HENRY B. GONZALEZ. Texas, Chairman
STEPHEN L. NEAL, North Carolina
JOHN J. LaFALCE, New York
BRUCE F. VENTO, Minnesota
CHARLES E. SCHUMER, New York
BARNEY FRANK, Massachusetts
PAUL E. KANJORSKI, Pennsylvania
JOSEPH P. KENNEDY II, Massachusetts
FLOYD H. FLAKE, New York
KWEISI MFUME, Maryland
MAXINE WATERS, California
LARRY LaROCCO, Idaho
BILL ORTON, Utah
JIM BACCHUS, Florida
HERBERT C. KLEIN, New Jersey
CAROLYN B. MALONEY, New York
PETER DEUTSCH, Florida
LUIS V. GUTIERREZ, Rlinois
BOBBY L. RUSH, Illinois
LUCILLE ROYBAL-ALLARD, California
THOMAS M. BARRETT, Wisconsin
ELIZABETH FURSE, Oregon
NYDIA M. VELAZQUEZ, New York
ALBERT R. WYNN, Maryland
CLEO FIELDS, Louisiana
MELVIN WATT, North Carolina
MAURICE HINCHEY, New York
CALVIN M. DOOLEY, Cahfomia
RON KLINK, Pennsylvania
ERIC FINGERHUT, Ohio
JAMES A. LEACH, Iowa
BILL McCOLLUM, Florida
MARGE ROUKEMA, New Jersey
DOUG BEREUTER, Nebraska
THOMAS J. RIDGE, Pennsylvania
TOBY ROTH, Wisconsin
ALFRED A. (AL) McCANDLESS, California
RICHARD H. BAKER, Louisiana
JIM NUSSLE, Iowa
CRAIG THOMAS, Wyoming
SAM JOHNSON, Texas
DEBORAH PRYCE, Ohio
JOHN LINDER, Georgia
JOE KNOLLENBERG, Michigan
RICK LAZIO, New York
ROD GRAMS, Minnesota
SPENCER BACHUS, Alabama
MIKE HUFFINGTON, California
MICHAEL CASTLE, Delaware
PETER KING, New York
BERNARD SANDERS, Vermont
Subcommittee on Housing and Community Development
HENRY B. GONZALEZ, Texas, Chairman
BRUCE F. VENTO, Minnesota
CHARLES E. SCHUMER, New York
KWEISI MFUME, Maryland
JOHN J. LaFALCE, New York
MAXINE WATERS, California
HERBERT C. KLEIN, New Jersey
CAROLYN B. MALONEY, New York
PETER DEUTSCH, Florida
LUIS V. GUTIERREZ, Illinois
BOBBY L. RUSH, Illinois
LUCILLE ROYBAL-ALLARD, California
THOMAS M. BARRETT, Wisconsin
ELIZABETH FURSE, Oregon
NYDIA M. VELAZQUEZ, New York
ALBERT R. WYNN. Maryland
CLEO FIELDS, Louisiana
MELVIN WATT, North Carolina
MARGE ROUKEMA, New Jersey
DOUG BEREUTER, Nebraska
THOMAS J. RIDGE, Pennsylvania
RICHARD H. BAKER, Louisiana
CRAIG THOMAS, Wyoming
SAM JOHNSON, Texas
JOE KNOLLENBERG, Michigan
RICK LAZIO, New York
ROD GRAMS, Minnesota
SPENCER BACHUS, Alabama
MICHAEL CASTLE, Delaware
DEBORAH PRYCE, Ohio
BERNARD SANDERS, Vermont
(II)
CONTENTS
Page
Hearing held on:
October 26, 1993 1
Appendix:
October 26, 1993 37
WITNESSES
Tuesday, October 26, 1993
Gray, Vincent C, Director, District of Columbia Department of Human Serv-
ices and Chairperson, District of Columbia Interagency Homeless Coordi-
nating Council 12
Martin, Marsha A., Executive Director, Interagency Council on the Homeless . 4
Roman, Nan P., Vice President, Policy and Programs, National Alliance to
End Homelessness; also on behalf of the National Coalition for the Home-
less and the National Law Center on Homelessness and Poverty 10
Talisman, Mark E., Co-Founder, National Emergency Food and Shelter
Program 8
APPENDIX
Prepared statements:
Gonzalez, Hon. Henry B 38
Roybal-Allard, Hon. Lucille 44
Vento, Hon. Bruce F 41
Gray, Vincent C 72
Martin, Marsha A 45
Roman, Nan P 64
TaUsman, Mark E 61
Additional Material Submitted for the Record
Aiken, Kimberly C, Miss America, letter dated October 25, 1993, to Chair-
man Gonzalez 103
Gonzalez, Hon. Henry B.:
Letter to HUD Secretary Cisneros dated September 21, 1993, with en-
closed Washington Post article entitled "HUD Targets Homelessness
in District" 100
Questions to Mr. Gray, with responses 85
Questions to Ms. Martin 50
Responses 51
Roukema, Hon. Marge:
Questions to Mr. Gray 91
Responses 93
Questions to Ms. Martin 58
Responses 59
Question to Ms. Roman 69
Response 70
Vento, Hon. Bruce F., letter to the Interagency Council on the Homeless,
dated October 21, 1993 102
(III)
INTERAGENCY COUNCIL ON THE HOMELESS
AND THE DISTRICT OF COLUMBIA
HOMELESS INITIATIVE
TUESDAY, OCTOBER 26, 1993
House of Representatives,
Subcommittee on Housing
AND Community Development,
Committee on Banking, Finance and Urban Affairs,
Washington, DC.
The subcommittee met, pursuant to notice, at 9:30 a.m., in room
2128, Rayburn House Office Building, Hon. Henry B. Gronzalez
[chairman of the subcommittee] presiding.
Present: Chairman Gonzalez, Representatives Vento, Roybal-
Allard, and Castle.
Also present: Representative Frank.
Chairman Gonzalez. This morning we have four witnesses that
I want to thank in advance, and I am going to introduce to you:
Ms. Marsha A. Martin; Mr. Mark E. Talisman; Ms. Nan P. Roman;
and Mr. Vincent C. Gray.
This hearing is being called in order to assess the impact of the
recent elimination of funding for the Interagency Council on the
Homeless and to hear testimony on the District of Columbia Home-
less Initiative. This hearing represents the Subcommittee on Hous-
ing and Community Development's longstanding effort to highlight
the need to address homelessness. As a matter of fact, it was this
subcommittee that first tried unsuccessfully for 4 years to bring to
national attention the question of homelessness with the first hear-
ing on December 15, 1982. Since then, this issue has had its ups
and downs reflected in the news media as to the prevalency, the
seriousness, and the acuteness of the homelessness crisis.
It hasn't abated, it continues to grow, but depending on the per-
ception as reflected in the news-disseminating media, we on the
legislative level are at the mercy of the vicissitudes and the whims
of that kind of coverage and also the administration or the execu-
tive department's reactions.
When we had the first hearing at the homeless shelter — in 1984,
in fact, on January 25 — on Second Street, we had an excellent
turnout; it was an all-day hearing. The shelter had over 1,100 per-
sons right there that day, and we had witnesses fi-om Governor
Cuomo to the then mayor of DC, of Chicago, of Denver, and the
like. The local press reported it very fully and vividly.
But the President the very next day — President Reagan, that
is — said, well, any American who is homeless is homeless because
he wants to be. Then 3 years later when the wheels of media re-
(1)
porting had increased in speed, then you had a big emergency, and
we got the first, I think it was over $150 or $100 milHon. Then,
of course, the rest is history.
The disarray continues. This subcommittee, as I have said and
I will repeat, has been in the forefi-ont of attempting to devise pol-
icy; that is our function. We are part of the only national policy-
making body, and with the elimination of the funding in an arbi-
trary fashion — there were no hearings, as far as I know, in the
Senate, nor in the House for that matter, on the appropriation —
this interagency council was unfunded. So what we want to do is
then ascertain — and we will have the administration's executive
spokesman here later — just where we are now.
In the second part of the hearing we will hear from District of
Columbia officials, I hope with respect to the announcement made
right before this hearing, regarding the funding of the $20 million
grant to the District of Columbia and which the newspapers re-
ported as meaning that the District would have to construct, and
create a special agency to handle money.
Also, disturbingly, it has been reported that it would provide for
the homeless being taken off the streets either through arrest by
police or involuntary commitment to mental institutions. Those re-
ports came out in both The Washington Post as well as The New
York Times. So I then immediately communicated with the Sec-
retary regarding this report, and I ask that that communication
and that correspondence be incorporated in the record at this point.
[The information referred to can be found in the appendix.]
I, for one, am very troubled. The fact remains that if the problem
from a policymaking standpoint is not clearly perceived and devel-
oped, then I think we are not discharging our prime duties.
We have with us this morning the ranking Member of the sub-
committee on the majority side, Mr. Vento, who also, in his first
years, in fact 1982, was very preeminent in his exertions and con-
cerns reporting what was happening in his home city of Saint Paul.
He is today chairing the Speaker's Task Force on Homelessness,
which was a result of President-elect Clinton's request to the
Democratic caucus, and the Speaker responded. And yet while this
task force is still in the throes of preparing a report, the adminis-
tration announces its changes in policy with respect to the han-
dling of this homelessness problem; and I want to develop these
hearings to see just what kind of intercommunication has devel-
oped.
I am supposed to be a member of this task force, when the
Speaker first constructed and announced it — he didn't consult, as
far as I know — and I was offered to Chair the task force, but I have
always understood the limits of my ability, and I have more than
I can handle right now, handling the full chairmanship of the full
committee and the Subcommittee on Housing.
So with that, I recognize Mr. Vento.
[Chairman Gonzalez' prepared statement can be found in the
appendix.]
Mr. Vento. Well, thank you, Mr. Chairman. I appreciate your
support for the work we are doing on the task force. You have al-
ways been supportive of Members efforts on these issues. It is, no
doubt, the reason why we have pushed as far as we have with the
different McKinney propositions, and I appreciate it. Other Mem-
bers certainly are advocates, too.
I appreciate, too, your willingness to come together to bring a
focus on some of the cutting-edge policy issues that have emerged,
rather surprisingly without a lot of dialog this past year.
Now, I come from the school of thought that things don't happen
in Washington by accident, that there are actually people behind
them, that there is involvement in it; that is to say that it isn't just
a series of unexpected events. And, clearly, the initiatives of the
new administration have been encouraging with regards to the
homeless; the appointment of capable people in positions of respon-
sibility, like Marsha Martin, is encouraging; the Executive order
that occurred in mid-May that the President charged the Inter-
agency Council on the Homeless with initiatives to come forth with
new policies in a deliberate manner over a period of 9 months,
which still has not elapsed, to provide a policy path for the new
administration in terms of dealing with the real challenge of
homelessness.
Some of the initiatives in terms of funding that occurred in the
stimulus package, which didn't materialize — the structural housing
support grants — signaled, I think, a new priority in terms of
change of priorities for the administration in terms of meeting this
human challenge. Therefore, of course, I think most of us were sur-
prised by the new initiatives for funding which had not been fully
discussed by the committees of Congress and perhaps not by the
Interagency Council on Homelessness. And, of course, more sur-
prising was the Senate's action in a report to defund or not to fund
the Interagency Council on the Homeless, and then the acceptance
of the House on that part with, I think — without proper delibera-
tion.
During the process of this, of course, I must say that the task
force and I think individual Members have contacted the conferees,
at least in writing, to alert them to the fact of our concern about
that.
I think all of us recognize the Interagency Council on the Home-
less in theory. There has been a disconnect between theory and
performance; nevertheless, it is a clear example of what needs to
be done. In fact. Vice President Gore in his most recent report on
the national performance review, Reinventing Grovernment, actu-
ally recommends this type of agency for homeless issues. So again
it is surprising that it needs to be killed and pronounced dead to
be reinvented, or should I say, in a Christian sense, "resurrected."
Several members of the Task Force on Homelessness, including
the chairman. Chairman Gonzalez and myself, signed a letter,
which I would put in the record at this time, without objection, Mr.
Chairman.
Chairman Gonzalez. Without objection.
[The information referred to can be found in the appendix.]
Mr. Vejstto. Which, of course, signals our concern about what is
happening. The termination of explicit funding could be a setback
for Federal programs for the homeless and for the Federal plan
that was ordered by the President in May, which I spoke of in my
earlier remarks.
This group of detailees and designees — of course, we have asked
for that, that it be continued in some manner, but I think that
until such time as there is a reconstitution of the proper funding
for the Interagency Council on the Homeless — I am well aware —
we talk a lot about interagency activities, and they soimd good in
theory; obviously, they don't always work in practice. But I really
think that this one has to be in place, and I think engaged — ^to sort
of act as a watchdog; and the individual agencies, that they are
properly reaching out to people that have serious problems, that
are in tne poorest of the poor in our society, the homeless.
I appreciate the hearing. I know the DC Initiative is a rather de-
tailed one, and I applaud any effort to try and set up national mod-
els of substantial funding that will meet the needs. I think we obvi-
ously want to be certain as to what the impact is on the individuals
in this model that is being set forth. It is a big initiative, and I
think everyone wants to optimize its success and its replication, if
indeed it works.
So with that said, Mr. Chairman, I will place the rest of my
statement in the record; and I will have to leave at about 10
o'clock, I have another hearing, but I can assure the individual
panelists that put efforts into these statements — and/or adminis-
tration — that I have closely reviewed the statements that have
come to me early and will review the remaining two this morning.
Thank you and thank the witnesses.
[The prepared statement of Mr. Vento can be found in the appen-
dix.]
Chairman Gonzalez. Thank you very much. And so, before you
leave, we are also announcing hearings. You mentioned Vice Presi-
dent Gore. The Secretary also said he wanted to reinvent HUD, so
I don't know how the inventing process is being worked out; but
in the meanwhile, the announcement that there will be less person-
nel gives rise to a very, very serious question. We had not one but
two inspectors general within the last IV2 years tell us that one
reason for the serious miscarriage of the effective working of the
FHA mutual insurance fund and other funds has been lack in num-
ber and in competency of personnel.
So if, in view of that, we are going to have cutbacks, we are con-
cerned. So I wanted to announce that we will be having hearings.
We want to have one this coming Friday, which is very difficult for
the members, but we have got to get going. And I always go on the
premise that we are paid whether we are in session or not for a
whole week's work; so I hope we can go through and announce
hearings for Friday in which we will look into this collateral issue.
Without any further ado, I want to recognize Ms. Marsha A.
Martin, who is the Executive Director of the Interagency Council
on the Homeless, and thank her for answering our call on rather
quick notice.
Ms. Martin.
STATEMENT OF MARSHA A. MARTIN, EXECUTIVE DIRECTOR,
INTERAGENCY COUNCIL ON THE HOMELESS
Ms. Martin. Thank you. Mr. Chairman and members of the sub-
committee, I am pleased to appear before you today to discuss the
Interagency Council on the Homeless and the District of Columbia
5
Homeless Initiative. I also want to thank you and the members of
the subcommittee for the vital role that you and the members of
the subcommittee have played in assisting all of us in our efforts
to address this crisis.
Homelessness remains one of the toughest problems facing this
country. Although public and private agencies and volunteers oper-
ate numerous programs that provide sorely needed assistance,
much work remains to be done. The country has suffered from a
tremendous dearth in leadership on the subject of housing and
homelessness. The promise that President Clinton and this admin-
istration brought to countless Americans sleeping on the streets, in
cars, transportation stations, and other nonhabitable places was
truly inspiring and refreshing to me.
Early on, Secretary Cisneros made clear his intention to respond
to homelessness. Not only did he make trips to the shelters and to
the streets, asking those most affected by homelessness what they
needed, if anything, and how he could make a difference at HUD,
he publicly discussed the need to address homelessness, starting
with the Federal agencies, not ending with them. In fact, Secretary
Cisneros made reducing the number of homeless families and indi-
viduals his number one priority. Then as a solid sign that this ad-
ministration was taking the issue of homelessness head on, the
Secretary appointed Andrew Cuomo, with whom I had worked
closely in New York City and whose dedication and relentless ef-
forts to provide housing for literally thousands of formerly home-
less persons served as a model for all of us in our effort to address
this complex issue.
Finally, Secretaries Donna Shalala and Jesse Brown, whose
agencies administer programs of significant importance in prevent-
ing and ending homelessness, have both demonstrated a firm com-
mitment to help those most in need in our society.
My career has allowed me to develop expertise as a provider of
services to homeless individuals and families, as a social work re-
searcher and educator and as an innovator and administrator of
homeless programs for Mayor David Dinkins in New York City. I
have lectured and consulted extensively across the United States
and authored numerous articles on homelessness.
I did not expect to leave New York, but Mr. Chairman and mem-
bers of the subcommittee, when given the opportunity to join the
Clinton administration and make an impact nationally in an area
to which I had devoted my professional life, I did not have to think
twice about making my decision.
As you know, the interagency council, which was established in
1987 under the Stewart B. McKinney Homeless Assistance Act, is
comprised of the heads of 17 Federal agencies that have programs
or authorities that can be used to assist homeless people. Cur-
rently, we have a staff of 10 in Washington and we are assisted by
10 full-time regional coordinators who have been detailed to the
council by HUD. The Housing and Community Development Act of
1992 reauthorized the council through October 1, 1994.
The first meeting of the council during the Clinton administra-
tion was held on May 19, 1993. HUD Secretary Cisneros was elect-
ed chairperson, and Secretaries Donna Shalala and Jesse Brown
were elected Co-Vice Chairs. On the same day, President Clinton
issued an Executive order that directed the 17 Federal agencies
that comprise the interagency council to develop a single coordi-
nated plan for breaking the cycle of existing homelessness and for
preventing future homelessness. The plan is to be submitted to the
President in February 1994, 9 months from the date of that order.
Since that meeting, we have worked to establish the short- and
long-term agenda, obtain input for the new Federal plan, and iden-
tify new directions and priorities. We have continued to develop
and distribute numerous publications to assist States and local gov-
ernments and homeless providers; we have sponsored regional
technical assistance workshops and interactive forums to provide
up-to-date information on Federal programs; we continue to work
with the General Services Administration to transfer surplus food
to nonprofit organizations serving the homeless.
We have also worked to make the council a more effective advo-
cate within the Federal Government for homeless people and the
nonprofit agencies that serve them. We have conducted a thorough
review of the existing program structures and proposed administra-
tive and legislative changes where they are warranted. We have
identified gaps in the current continuum of care, as well as addi-
tional opportunities for integrating systems. We continue to work
closely with the State and local governments to share models of ef-
fective interagency program coordination and increase their capac-
ity to develop effective local solutions. And we have redesigned our
workshops to enhance the level of technical assistance and sub-
stantive interaction between the participants.
The council serves as an important role in bringing together Fed-
eral agencies to coordinate diverse policies, programs, and issues
for homeless populations. The council brings together Cabinet-level
officials and senior staff from member agencies to identify opportu-
nities for improving delivery of programs and services. The council
also serves as a central resource for essential information for orga-
nizations serving homeless people.
The Clinton administration holds addressing homelessness as a
high priority. As you may know, the President included funding for
the interagency council in his fiscal year 1994 budget request, and
Secretary Cisneros wrote to the House and Senate Appropriations
Subcommittees on VA, HUD, and Independent Agencies supporting
the requested funding and expressing the need for the coordinating
body.
The White House, through the Domestic Policy Council, HUD,
HHS, VA, and other member agencies of the council, remains firm-
ly committed to the continuation of interagency coordination and
activities. As soon as the administration became aware that the
council would not be funded, it began examining the range of op-
tions to continue the interagency council mission and its inter-
agency coordination and activities. It is my understanding that the
administration will make an announcement shortly on the specific
plan to accomplish this.
Now, because of your specific interest in the DC Initiative, I
want to take a few minutes to speak about it. Secretary Cisneros
and DC Mayor Sharon Pratt Kelly recently announced their inten-
tion to develop, fund, and implement a dramatically different ap-
proach to homelessness in the District. Secretary Cisneros contin-
ues to value this unprecedented relationship with Mayor Kelly and
the important role Vince Gray serves in this endeavor.
The DC Initiative is intended to serve as a national model for re-
structuring the Federal-local relationship in addressing homeless-
ness. As Chairperson of the Interagency Council on the Homeless,
HUD Secretary Henry Cisneros invited the 17 member agencies to
join in this effort. The DC Initiative has drawn upon this unprece-
dented Federal and local government partnership, as well as local
and private sector participation. A series of joint planning sessions
and subcommittee meetings coordinated by HUD, the council, and
the District of Columbia were held with nonprofit housing devel-
opers, service providers, advocacy organizations, homeless individ-
uals, private foundations, neighborhood groups, local businesses,
and the investment banking community.
The recommendations of the DC Initiative call for implementing
the following objectives. Replacing the current system of "shelters
with an approach that distinguishes between the diverse needs of
homeless families and individuals and employs a continuum of care
model that consists of three essential components: Comprehensive
outreach and assessment; transitional rehabilitative services; and
support of permanent housing designed around specific individual
needs for homeless families and individuals. The system includes
strengthening efforts to prevent homelessness.
The DC Initiative recognizes the need for effective administration
and "reinventing" the management structure by streamlining exist-
ing government efforts and establishing a new public-private entity
to coordinate and finance the implementation of the new homeless
assistance system.
The DC Initiative involves a social contract by which government
is willing to provide services to homeless persons in need, and the
individual or family is responsible for participating in an effort to
gain independent living skills and avail themselves of services in
housing afforded to them.
The DC Initiative acknowledges and recognizes the concerns of
residents and businesses, as well as the well-being and the need for
improved living conditions for individuals who are homeless. The
initiative seeks to end the use of public spaces by homeless persons
as residences of last resort through a sensitive program of outreach
and a continuum of care.
The DC Initiative seeks to increase the availability of affordable
housing for low-income District residences and to develop an equi-
table means outside of the homeless system for distributing afford-
able housing opportunities.
Included in the DC Initiative plan is a partnership agreement
which outlines the District's commitment to produce or contract for
the following housing facilities and other services over a 2-year pe-
riod of time: For single adults, it includes 240 supportive housing
placements for persons with mental illness, 400 substance abuse
placements, 50 residential placements for persons with AIDS, 100
job training program opportunities, and 160 single room occupancy
units.
For families, it includes 1,000 permanent housing placements
and 100 substance abuse placements, for a cumulative total of
2,050 placements.
8
The District must produce or contract for required activities dur-
ing the first year to obtain the remaining funding for the initiative.
The DC Initiative is a very important effort in developing the na-
tional models to address homelessness. The recent action by the
House to approve HUD's Innovative Housing and Homeless Fund
will enable us to expand this approach in other cities across the
country.
Thank you for inviting me, and I will be happy to answer any
questions you may have.
[The prepared statement of Ms. Martin can be found in the
appendix.]
Chairman Gonzalez. Thank you very much.
Mr. Talisman, thank you again. You have always been there
when it counted.
STATEMENT OF MARK E. TALISMAN, CO-FOUNDER, NATIONAL
EMERGENCY FOOD AND SHELTER PROGRAM
Mr. Talisman. I am in a rather odd position because I can't fig-
ure this one out. I have spent a number of years, including service
with Mr. Vanik on this very subcommittee, as you know, for 8
years, and I teach the subject; I have done 40 half-hours of tele-
vision on the three branches of government and I don't get it. I
don't understand what happened.
I listened to the distinguished ranking Member, Mr. Vento, for
whom I have maximum high regard for his judgment, and he says
there is always a reason. I would love to know it because I have
tried to find out, and I haven't been able to.
Normally, when something is broken either you try to fix it or
get rid of it, and you make a judgment. In this case, none of that
seems to have happened from what I can gather.
I had the rare privilege — and I do use that term advisedly in this
town; it was a privilege to sit at a briefing 6 or 8 weeks ago as a
part of the Emergency Food and Shelter Program briefings by Mar-
sha Martin and her colleagues — and heard what I thougnt was an
absolutely extraordinary explication of what was going on good,
bad, and otherwise. It was the first honest presentation that I had
heard after having lived through unmitigated hell in regard to the
interagency council for a number of years of its life in which dis-
sembling and antipeople attitudes were as evident as not; and we
said so at the time. We tried desperately to help the interagency
council function, and it didn't.
Now, normally you would say in this town, OK, get rid of it; it
isn't worth it. Then Marsha came on the scene, moved down from
New York, and has been beating her brains out, quite literally, try-
ing to get all of these things going. I wouldn't want to have the
Congress or the administration rest on the notion of keeping some-
thing alive because of a person; but in fact, Marsha has energized,
as has her staff, an institutional framework that is actually work-
ing as a neutral address, as she indicated in her testimony, but in
fact, also where people can come fi-om the outside, from the inside,
to perform coordinated functions actually as was envisioned in the
McKinney Act in 1980 when this was created — as you remember so
well, Mr. Chairman — and then the news last week — you and I
talked about it; it was a shocking kind of obituary that was the re-
verse of the Mark Twain comment. I mean, in fact, it died before
anyone knew or at least most people knew.
And I still, as a consequence, would hope that as a direct result
of the hearing and what I believe to be, in my soul, President Clin-
ton's and Vice President Gore's and Secretary Cisneros' views on
housing and homelessness and long-term policy to provide an abil-
ity for people to live properly in this country, that they don't want
this to happen.
I can't believe it, and there have been some whispers around,
Marsha has just alluded to the fact that there are going to be some
announcements. I hope they turn into shouts real quickly. I would
hope, given the fact that I have the highest regard for the
gentlelady from Baltimore who chairs the Subcommittee on Appro-
priations, who I have known for a number of years, there has to
be some way to reverse this formally. I know that is tough.
I mean, I have gone through all of my teaching notes and all of
my experience, and I don't know if those kinds of reversals easily —
given time pressures, schedules, and the appropriations clock in
this town — but there has got to be a way to do that effectively, so
that we are singing finally from the same sheet of music here.
We have been waiting to do that for a very long time; and I think
that under Marsha's leadership, the interagency council has been
able to do that.
I guess the bottom line for me is what I have been harping on
with my children, with my family, in regard to our personal respon-
sibilities, as well as what I have tried do in regard to my official
capacity; and that is that you can't continue to have us believe as
a country that if our citizens go to bed at night without shelter and
our babies go to bed at night without milk that we are any kind
of a superpower at all. It is a self-delusion that is Romanesque, and
what happened to Rome can happen to us. That is not an over-
statement.
In this particular case, I don't want to blow it up beyond its pro-
portions, but I thought we were finally on the way to working to-
gether, all of us, and I think the interagency council was exactly
the way to do that. A moment's commentary from me — and I don't
have a lot of expertise on it, although I got briefed up more than
adequately on the DC Initiative as a citizen of this region and this
area — and the fact that everyone seems to want to focus properly
on the District, it seems to me that we were finally on the way to
doing something correct. The District, I must say, from — the Emer-
gency Food and Shelter Program, we had a hard time getting a
District employee, someone representing the District on the local
Emergency Food and Shelter Program. That has now been done, as
I understand it.
The National Emergency Food and Shelter Program is interested
in responding both to Marsha and the District's request that they
made of it, as I understand it. I think they are wonderful opportu-
nities to move forward in a coordinated way. It is kind of odd, but
we ought to get going and just do it instead of fooling around any-
more, because I don't think the people in the streets deserve what
has been going on in this respect. So I do appreciate the oppor-
tunity.
10
I would also ask your permission to insert my statement as if
read. Thank you.
Chairman Gonzalez. Certainly. I should have annoimced that
each one of your written statements as given to us will be placed
in the transcript of the record immediately following your oral sum-
mation, and certainly I should have said that at the outset.
[The prepared statement of Mr. Talisman can be found in the
appendix.]
Ms. Roman.
STATEMENT OF NAN P. ROMAN, VICE PRESmENT, POLICY
AND PROGRAMS, NATIONAL ALLIANCE TO END HOMELESS-
NESS; ALSO ON BEHALF OF THE NATIONAL COALITION FOR
THE HOMELESS AND THE NATIONAL LAW CENTER ON
HOMELESSNESS AND POVERTY
Ms. Roman. Thank you, Mr. Chairman. I am Nan Roman, vice
president of the National Alliance to End Homelessness. I am also
here today representing the National Coalition for the Homeless
and the National Law Center on Homelessness and Poverty.
The Alliance itself, Mr. Chairman, has some 1,700 member orga-
nizations in every State in the Union; and together with the other
two organizations, we represent thousands of service and housing
providers and advocates for homeless people around the country. I
want to thank you for holding this hearing.
As you will recall, in 1991, the Alliance gave you our award for
outstanding contribution to ending homelessness, and in 1993 we
gave this annual award also to Mr. Vento. We feel amply justified
in the trust we have placed in your leadership on this issue par-
ticularly today, in terms of the interagency council and the DC Ini-
tiative. First, I would like to address myself, if I could, to the inter-
agency council.
Mr. Chairman, our organizations believe that an effective Inter-
agency Council on the Homeless is an essential element of any Fed-
eral attempt to end homelessness. It is essential because homeless-
ness is a cross-cutting issue. Homeless people need services and
housing and receive services and housing from numerous Federal
agencies. They receive AFDC and SSI disability; they require child
care services, health care services and, of course, housing. The var-
ious agencies which deliver these different elements of assistance
must coordinate their effort; and for this kind of coordination to
succeed, we believe that two things need to happen.
The first is that they need to participate as equal partners when
coming to the table to discuss their joint endeavors. Second, they
need the full leadership of the administration behind them. It is for
this reason that we believe that the interagency council would not
best be placed at any individual Federal agency but would better
be placed in the White House or in the Executive Office.
The Alliance, the Coalition, and the Law Center have independ-
ently recommended this course since early in the Clinton adminis-
tration. This is no criticism of HUD. We are sincerely grateful to
Secretary Cisneros for his commitment on the issue of homeless-
ness and we thank him for making it the top priority of his agency.
We are also grateful for the efforts of Assistant Secretary Cuomo.
Nevertheless, we believe that the President could better exert his
11
leadership on this issue if the council were not placed in any one
particular agency.
We need the interagency council, we believe, for two reasons. The
first is that we need a centralized source of information on Federal
resources and policy relating to homeless people. We need the coun-
cil to accumulate and disperse information on NOFAs, regulations,
application guidelines, and so forth. It is very difficult for our
groups to get this information if they have to go to 17 different
Federal agencies to try to get it, as you can well imagine. This is
particularly true for organizations that aren't located in Washing-
ton.
Also researchers. Congress, all of us need information on home-
lessness, and we need the council to accumulate this information.
The council also serves an important technical assistance function
in providing assistance on applications and the like. In order to ac-
complish these functions, we need a council with adequate re-
sources and also with an educated staff that knows the Federal
agencies and the programs that they provide.
But even more importantly, the council has a critical policy role.
It needs to coordinate and monitor all Federal homeless programs;
it needs to be proactive in monitoring or assessing where the gaps
are and in coming up with solutions about how to fill those gaps;
it needs to help State and local governments and nonprofits in
terms of evaluating their programs and doing their own coordina-
tion, and most importantly, I think, it needs to develop a Federal
plan for ending homelessness and then work to implement such a
plan.
Once again, we think that those functions would best reside in
the White House agency because there they can have the full lead-
ership of the President behind them. We believe that the Federal
response to homelessness requires more coordination, not less.
Mr. Chairman, all of these functions were designed by you as
tasks of the council in the 1987 statute. Your leadership on this
has preceded us, but these functions are needed more now than
they were then; and we are quite certain will become even more
important in the future. We believe that we must keep the council
going in the interim year until we can get it reauthorized and
appropriated.
In my written testimony, I have given a proposal for how that
might be accomplished by placing the council in the White House
and using donated staff and resources from the various different
agencies involved. We would ask for your assistance in accomplish-
ing this, or any other structure that would keep the council going
in this interim year. We really cannot afford to lose its coordinat-
ing, information, and policy functions.
We do, as Mr. Vento mentioned, also have an Executive order for
a Federal plan that really must be carried out in the coming year.
We will continue to fight for the interagency council and will sup-
port your efforts to do so.
I would like briefly to address the DC Initiative. Our organiza-
tions are concerned about the initiative insofar as the District and
other jurisdictions funded by the Innovative Homeless Initiatives
Demonstration Program are intended to be models for the rest of
12
the country. In this regard, we have three concerns which we have
shared with HUD, as well.
The first is that the purpose of the Federal funding in this pro-
gram is somewhat unclear to us. Is it meant to fill gaps in services
or is it meant to create a coordination structure; or is it meant to
fill several of those functions.
If it is meant to fill gaps, frankly, it is probably not enough
money, looking at it in terms of the level of the DC Initiative. Also,
it is a 2-year program, and so we would have concerns about where
we could find continuing funding.
If it is meant to develop a coordination structure, it needs to
have very specific goals and objectives; $20 million would be
overfunding for such a goal, particularly when we have just lost $1
million for coordinating all Federal programs. So we would like to
see some further definition of the goals and objectives of the pro-
gram, but certainly the funds are very much needed in the District.
Second, there needs to be a formal mechanism for involving all
parties in the planning and coordination portions of these initia-
tives. In particular, community-based organizations and homeless
people need to be pulled in and involved at the beginning stages.
It is our concern that no initiative could really be successful with-
out people buying in at the beginning.
And finally, we would recommend that there must be some as-
sured maintenance of effort by local governments receiving Federal
funding. That is present in the DC Initiative plan. We would like
to see that in the other programs, as well.
In summary, the National Coalition for the Homeless, the Na-
tional Law Center on Homelessness and Poverty, and the National
Alliance to End Homelessness will continue to work for an effective
and independent Interagency Council on the Homeless. We ask for
your support on this. In addition, we will continue to watch with
great interest the DC Initiative and would be happy to work with
you and with HUD on further efforts to pursue coordinated assist-
ance to homeless people.
Thank you so much for your leadership on this issue.
[The prepared statement of Ms. Roman can be found in the
appendix.]
Chairman Gonzalez. Thank you, Ms. Roman.
Mr. Gray.
STATEMENT OF VINCENT C. GRAY, DIRECTOR, DISTRICT OF
COLUMBIA DEPARTMENT OF HUMAN SERVICES AND CHAIR-
PERSON, DISTRICT OF COLUMBIA INTERAGENCY HOMELESS
COORDINATING COUNCIL
Mr. Gray. Good morning, Mr. Gonzalez. I am Vincent C. Gray;
I am the director of the Department of Human Services for the Dis-
trict of Columbia, and I also serve as the chairperson for the Dis-
trict's Interagency Council on Homelessness.
I want to add my gratitude to that expressed by my colleagues
here at the table for the leadership that you have provided on this
issue over the years. That leadership, obviously, has been evident
not only in the Halls of Congress, but actually getting out into the
streets and into the shelters and literally understanding the pro-
portions of the problem that we face and how it has literally ex-
13
ploded in this country over the last several years. So let me start
by taking the opportunity to thank you for what you have done on
this issue, and certainly what we are continuing to do to assist this
Nation's homeless.
I am joined here by the District's team that has worked on the
District's initiative, the DC Initiative, Enid Simmons, who is the
director of our Office of Planning and Evaluation; Milton Bailey,
who is deputy director of our Department of Housing and Commu-
nity Development; Claudia Booker, who is here representing today
the director of the Department of Public and Assisted Housing; Jim
Butts, who is the administrator of our Income Maintenance Admin-
istration; Dr. Robert Keisling, who is one of the key administrators
in our mental health system in the District of Columbia; and Helen
Keys, who is a key player in running our Office of Emergency Shel-
ter and Support Services.
Again, let me say good morning to you.
First of all, let me speak to the interagency council, which the
District of Columbia regards certainly in the recent past, as has al-
ready been indicated here, as a valuable clearinghouse for informa-
tion on homeless initiatives implemented by local governments, and
which certainly has been instinimental to our efforts to formalize
the DC Initiative by facilitating our access to key Federal Govern-
ment agencies.
The partnership between the government of the District of Co-
lumbia and HUD, known as the DC Initiative, is a promising,
ambitious, innovative, interdisciplinary approach to ending home-
lessness that we hope would be a model for local governments
nationwide.
The District of Columbia, like other major urban areas across the
Nation, has experienced an alarming increase in the number of
homeless persons among its citizens over the past decade. In 1975,
for example, the District government maintained two small emer-
gency facilities with about 100 units, and an additional 200 single
men and women were served through private facilities. The District
government would contract with private providers if more shelter
capacity was needed.
Charitable organizations served an additional 400 persons on a
daily basis. At that time, virtually no one lived on the streets.
By 1981, the problem had begun to grow enormously. Our shelter
capacity in the city had grown to accommodate 600 men, women,
and children, and we had increased the number of facilities from
two to four. Additionally, there were 200 families who were pro-
vided with vouchers to seek services on an emergency basis in ho-
tels and motels.
By 1989, the problem had virtually exploded in the District of
Columbia, as it had across the country. During that year, shelter
services were provided to over 11,000 single adults and 2,400 fami-
lies at a cost of over $40 million annually.
Of course, we see the evidence of the number of people living on
the streets since 1989. The increase in the number of homeless per-
sons is in large part the product of two phenomena of the 1980' s —
a significant increase in poverty and social ills coupled with a se-
vere reduction in Federal funding for social service programs, and
a drastic decrease in Federal funding for housing programs for low-
14
income persons. The increase in poverty and decrease in housing
programs, exacerbated by the recessionary economy that has char-
acterized the 1990's, proved to be a recipe for homelessness in epi-
demic proportions.
The National CoaHtion for the Homeless estimates that there are
approximately 3 million homeless persons in the United States, a
figure that, while large, represents at best a good-faith effort to ac-
count for a population that does not usually make itself available
to census takers. Over the past 5 years, the District government
has spent approximately $100 million in local and Federal funds in
its effort to meet the needs of homeless persons in DC alone. Of
course, local charitable organizations have added literally millions
of dollars to that.
Despite the tremendous commitment of public and private dol-
lars, homelessness remains one of the most persistent and complex
challenges that the District government faces. Thousands of Dis-
trict government person-hours have been devoted to evaluating
past efforts and fashioning new initiatives to meet the challenge.
Our analysis has led us to conclude that homelessness does not
lend itself to one-dimensional solutions like providing shelter serv-
ices alone. Instead, the eradication of homelessness depends upon
the establishment of a supportive community network as envi-
sioned by the DC Initiative.
The profile of the District's homeless population supports our
conclusion. Our homeless population consists of five primary sub-
populations: Single adults with special needs; single adults with
short-term needs; families with special needs; families with short-
term emergencies; and marginally housed families.
An estimated 3,400 single adults with special needs constitute
approximately 60 percent of all persons using the District govern-
ment's shelter system. This population requires intensive assist-
ance for mental illness, chemical addiction, and HIV/TB infection.
It includes the approximately 1,200 to 1,500 individuals who live
on the District streets, and appears to use shelter or public space
intermittently and interchangeably.
Single adults with short-term needs include individuals who are
temporarily homeless due to fires, building condemnations, cold
weather emergencies, threatened eviction, or nonpayment of rent.
These people normally do not require intensive services.
With respect to families, those with special needs constitute
about 20 percent of the existing shelter residents. These families
use the emergency shelter system repeatedly and have lived in pre-
carious and unstable housing situations. They often experience
problems of chemical addiction. Major medical illnesses and domes-
tic violence is prevalent in their experience.
Families with short-term needs or emergencies represent a sig-
nificant percentage of those in our shelter system. Like the single
adults with short-term emergencies, these families are ternporarily
displaced fVom their homes due to fires and other conditions that
I described earlier.
Finally, those who are marginally housed families live in doubled
up arrangements or dilapidated housing, or on the verge of evic-
tion. This group includes teenaged parents and families that have
been dependent on welfare benefits for long periods of time. Mar-
15
finally housed families use shelters as one of a series of makeshift
living arrangements.
In anticipation of the exciting planning effort that has unfolded
over the last several months, we have already begun to make im-
portant changes in our own shelter system. First, and perhaps fore-
most, we have virtually eliminated the use of hotels and motel
rooms. We now use only 50 rooms for housing of families in shel-
ters, and that purpose is for assessment and oeginning the process
of services. In fact, 90 percent of our families now are sheltered in
apartment-style living units.
Second, we have improved access to benefits such as AFDC, Med-
icaid, and food stamps.
Third, we have expanded our case management services through
a contractual arrangement with Lutheran Social Services, which is
now providing case management services to 300 families and fol-
lowing them into permanent housing when they leave shelter.
Fourth, we have markedly improved, through the use of Federal
and local funds, the conditions in our shelters across the city, in-
cluding all buildings, such as the Randall Building, the Blair Shel-
ter, and several others; and beginning on November 1, we will con-
tract out our hypothermia services, which will allow us during the
winter months to have a much more substantial presence in the
streets to try to reach the hard-to-reach population.
Despite improvements in our system, it is clear that the District
government, like virtually every local and State government in this
Nation, where homelessness persists, has continued to operate es-
sentially an emergency shelter program, while a more extensive
continuum of care is required to address effectively the problem of
homelessness. However, no local or State government can tackle
alone the complex and seemingly intractable problems associated
with homelessness. Federal support is essential if we are to create
enduring solutions.
Soon after the Clinton administration assumed the reins of lead-
ership, our Mayor Kelly and Secretary Henry Cisneros, Secretary
of the Department of Housing and Urban Development, began to
discuss the potential for a Federal District partnership to create a
model service delivery system to address the very needs of people
who are homeless in the District. After numerous discussions and
a number of visits to District shelters and late night visits to the
District streets by Secretary Cisneros, the mayor and the Secretary
on June 10 announced their intention to develop a markedly new
approach to homelessness in the District of Columbia.
In the months that followed, an unprecedented planning effort
unfolded, involving several hundred people representing what is
now being referred to as the Seven Corners — not-for-profit housing
developers and service providers, private foundations, local busi-
nesses, the investment banking community, neighborhood groups,
the District government, the Federal Grovernment — and people who
are homeless.
Cooperation between the Federal and District governments
throughout the development of this plan has been continuous and
essential to its progress to date. There virtually was not a day over
the past 5 months without a meeting or other communication be-
tween District and Federal officials relative to the development of
16
the initiative. In addition to the leadership provided by HUD
through Assistant Secretary Andrew Cuomo, staff members of the
Federal Interagency Council on the Homeless also were particu-
larly instrumental in bringing the plan for the DC Initiative to fru-
ition.
Among the numerous areas of assistance provided, staff mem-
bers, especially, were helpful as catalysts to access the key agen-
cies, such as the Department of Veterans Affairs, FEMA, ACTION,
and the Department of Health and Human Services.
Finally, on September 15, just about 5 weeks ago, the Depart-
ment of Housing and Urban Development and the District an-
nounced completion of the DC Initiative plan entitled "Working To-
gether to Solve Homelessness." HUD is committed to provide $20
million over the next 3 years toward implementation of the plan;
$7 million will be provided in the first year, $7 million in the sec-
ond year, and $6 million in the third year. An essential tenet of the
plan is that homelessness can be solved only by creating and imple-
menting a continuum of care that addresses the root conditions un-
derlying homelessness.
Ms. Martin already has outlined the basic objectives and ele-
ments of the svstem, so I won't repeat those, but again we see the
"Continuum of Care" model as an important component of change
in the District system.
Responsibility for implementing and coordinating the plan has
been delegated to the District's Interagency Council on Homeless-
ness for which I, as I indicated, serve as chairperson. Our inter-
agency council involves all agencies that directly or indirectly pro-
vide services to people who are homeless. Some 10 or 11 agencies,
ranging from human services through the housing agencies, em-
ployment services, public works, and a variety of other support
agencies, these key District agencies have been joined by represent-
atives of the Federal Interagency Council on Homelessness and of-
ficials of HUD and its Washington, DC field office, whose assist-
ance has absolutely been invaluable.
We are now meeting on a biweekly basis, and we have organized
ourselves into eight task forces reflecting the essential elements of
the plan. They include intake and assessment, outreach, housing,
prevention, employment, development of an entity to manage this
process, financing, and an effort to communicate what this plan is
across the District of Columbia in particular. Each task force now
has developed, within the last 10 days, an implementation plan;
and even though this plan will unfold over the next 2 to 3 years,
we have already begun the process of implementation.
For example, I mentioned our expanded hypothermia outreach
response. By the end of December, we will have two new drop-in
centers that will be developed in the city. We are in the process of
converting one of our shelters to include 25 transitional beds as a
beginning; a pilot employment project will be developed by the be-
ginning of January; and finally, within the next 3 months, we will
have developed a 50-bed facility for homeless singles with sub-
stance abuse problems.
With regard to financing, the plan will be financed fi-om multiple
sources, including the redeployment of District resources, private
sector commitments, and, of course, funding from HUD. The Dis-
17
trict, HUD, and the Federal Interagency Council are evaluating the
feasibility of using a portion of the $20 million in HUD funding to
leverage private capital to finance low-cost construction of housing
units and social service delivery systems. HUD has required the es-
tablishment of the entity as a condition to providing funding.
Finally, what is ahead? The greatest portion of our task still lies
ahead of us because, of course, we have just completed the plan.
We have now the task of determining the nature and scope of ap-
Eroval that will be required by our council of the District of Colum-
ia to implement this plan; we continue to have the challenge of
defining the types and range of services that would be provided. As
indicated, we will continue to clarify the governance, mission, and
implementation strategy for the new entity and, of course, we must
clarify the use of the initial $7 million in the first year.
Again, while the plan establishes a blueprint, we view this as a
fluid process and one that will continue to evolve, and hopefully
will, Mr. Chairman, give us the opportunity to move away from an
emergency shelter system in the District of Columbia to create real,
permanent, enduring solutions for families and singles who are
homeless in the District, and hopefully make a contribution to our
colleagues across the Nation in how to resolve, once and for all, the
problem of homelessness in this Nation.
Thank you very much for permitting me to come today. And I
will be happy to address your concerns.
[The prepared statement of Mr. Gray can be found in the appen-
dix.]
Chairman Gonzalez. Thank you, Mr. Gray, and, Ms. Roman, for
your very generous remarks. I deeply appreciate it. The fact is that
I am really a privileged American. I have been privileged to serve
on all levels as a legislative representative, what I call legislative
advocacy, from the local, the city council in my city, to the State
Senate, and here in the Congress, 32 years.
Given that privilege, I feel I have a greater responsibility to
make sure that I remain a true witness to that experience which
I have been privileged to receive, by the people. I also worked for
the San Antonio Public Housing Authority in the 3-year period,
probably the most extensive public housing enlargement program,
certainly in Texas at about the time, between 1950 and 1953.
I had the great privilege of working with the newly acquired di-
rector in San Antonio that we got from Houston, the very famous
Marie McGuire. And so, having been a witness to that, I also, after
the war — or right about the end of the war — had the privilege of
working for the juvenile court. There was a crisis then, and that
was juvenile delinquency. That was in the headlines. San Antonio
was a war impact area. It was a challenge then, and my services
were recognized.
I was named chief juvenile probation officer, which surprised a
lot of people in that city and that county. But, what I am saying
is that I am doing nothing more and nothing less than just trying
to be efficient and obedient and responsive to that privileged expe-
rience that I have had on all of these levels.
I am also privileged to have lived a span of years — with almost
total recall — of a period of time that I had vowed to my companions
who grew up with me, and who equally vowed that we would do
18
everything we knew how to have our children and grandchildren
not experience what we now read as the description.
We have terrible poverty today but there is no way that I can
evoke to you that degree of poverty. I mean there were people who
were literally dying and you had families living in cardboard/tin
shacks, a dirt roof, with no running water.
An area that I became intensely concerned about, as a juvenile
probation officer, was then known as the "death triangle" because
in that area, San Antonio had the highest rate of infant death be-
cause of infant diarrhea.
I was privileged to serve with the housing authority less than 10
years after that, in that very area, and to see constructed a brand
new public housing project.
What I have to say is not pessimistic. Nevertheless, I will never
try to deceive myself from reality. And the reality is that the chal-
lenge is even greater today.
I have sat on this subcommittee that has the overall bird's-eye
view and it has been most anguishing to see these things developed
which I have hoped had been banished — such as poverty, such as
juvenile crime — and see exactly as it was developing all of the con-
tributing factors that I knew were going to develop until what is
today agitating our minds and hearts and souls, not only locally
but nationally.
So it has been a tough fight against demoralization. And only be-
cause in this experience I speak of and refer to and only personal-
ize just to make that point, that even out of that nettle of difficult,
mean, pervasive problems can you pluck a flower of resolving the
problem and bettering conditions.
It is not one person who can do it, any more than what you
have reported on this morning can be done by any one agency or
association.
Given that, I am going to be in direct contact with you, Mr. Tal-
isman, because of your background here in the congressional proc-
ess. But what can we do? I Know what to recommend in order to
save the funding situation as far as the Interagency goes. But I
want to make sure that that is what the administration wants.
And I don't know.
For instance, at no time was I ever contacted when the Appro-
priation bill came to the House Appropriations Committee and
much less after the Senate acted and the House went into con-
ference, even though I have a very close and satisfactory working
relation with Mr. Stokes, the new chairman of the Subcommittee
on Appropriations on VA, HUD, and Independent Agencies. Now
that concerns me.
So then, when I did find out, after the fact, we had warded off"
some other things that I know the administration had been con-
tacting the Appropriations Subcommittee about that they didn't
think I was aware of, but which I was.
So I am a little bit concerned about what it is the Executives
over at both HUD and the White House really want.
Now, Ms. Roman, I have no way of ascertaining the veracity or
the authenticity of the rumor, which is what I call it — that it is
really the White House that wishes to direct the homelessness ef-
forts very much along the lines that I thought I interpreted that
19
which you were suggesting. That is, if you have a comprehensive
initiative, that it not be ensconced in any one agency.
But, there again, if the leadership is not there, I don't know what
we can do. We have had to combat, for 15 years, negative leader-
ship. The only thing we succeeded in doing was fighting this off —
not meeting the burgeoning problems that are arising, such as
homelessness. But more basically, those that were creating the en-
vironment and the reason for homelessness.
We spent 15 years just fighting off to preserve some of the
vestiges of what had taken 30 years of effort in the Congress to
achieve through numerous hearings and whatnot. And this was
done away with, as Mr. Stockman did the very first year he served
as Director of Office of Management and Budget. So we managed
to salvage, but not really respond to the needs of the country.
So now our challenge is fourfold. What, for instance, is going to
happen here with the Vice President's mandate that 200,000 Fed-
eral employees be eliminated? What proportion of that is HUD?
And I have had the staff trying to figure that out. How will that
translate?
In the meanwhile, though, there is more than one way to skin
a legislative cat.
This is an overall program that the President does wish, as he
demonstrated when he came before the caucus after his election,
which was the direct cause for the creation of the Speaker's task
force — which, I must say, the leadership was saying we have got
to eliminate all of these nonlegislative, ad hoc committees and then
creates a task force because in the caucus meeting the President
was set to by three or four Congressmen that wanted to find out
what he intended to do about homelessness and he sent the chal-
lenge back, and he said, you create a group and I will work with
it. And so they did.
But as far as I know, I don't know what give and take there has
been. Certainly, Mr. Vento — who is chairing that task force, and I
am a member of it — did not know that this was going to happen.
So in the meanwhile, more specifically the staff has very ably
given me some information as to what is advanced now as the rea-
sons for the Senator from Maryland's unilateral and what seems to
be almost a spontaneous decision to eliminate the funding over in
the Senate.
They tell us — and I say "they" meaning that sources from the
Senate Appropriations Committee — that the reason it was not rec-
ommending additional funding for the council was because it had
failed to significantly reduce, quote, the overlapping redundant and
bureaucratic nature of Federal homeless programs.
Now, I know that you came aboard quite recently, Ms. Martin;
but have you heard that, or have you been told that, or are you
aware that that is the reason they are giving?
Ms. Martin. I read that statement in the subcommittee report
that the feeling was that the council had not been effective in re-
ducing what appeared to be redundancy.
On the other hand, I would suggest that the council was able to
model and become a model for States and counties and intergovern-
mental collaborative relationship that now exists.
20
And as Vincent Gray identified, even here in the District of Co-
lumbia they have an interagency council modeled after the Federal
Interagency Council. And we see that across the country and
through the establishment of these local councils. It has been the
first time that government agencies, city agencies, and depart-
ments have sat across the tables with one another. Prior to the cre-
ation of the interagency council, they had not.
So we are talking about a developmental process which is just
beginning. And perhaps it is too soon to determine its effectiveness.
Chairman Gonzalez. Well, I agree with you. My impression
here, sitting on the sidelines, was that the wisest choice ever made
was when they brought you in from New York.
And I am very familiar with what New York has done with the
withdrawal of tne Federal Government, not only the city of New
York but the State of New York, the leading State and the leading
city as far as diverting funds, desperately needed local funds, for
housing and homelessness. This subcommittee has gone to New
York at least nine times.
In 1982, one of the reasons we had the first hearing was because
a person had frozen to death on the street and an effort was being
made by a group attempting to service the homeless to use the old
city college on Second Street as a shelter, and had resistance from,
I think, GSA.
So we had the hearing, brought them in; and as a result, later
that month, they were able to get the building. But then we had
to work at cross purposes because GSA was not talking to the old
HEW. And so I have seen everything.
In fact, by 1984, finally the Secretary of Defense, Weinberger,
came in, and they formed a sort of a rough interagency group —
GSA, HUD, HEW, and the Defense Department. We have reached
a point in our country where everything is going to be solved if we
just call in the military. And it is so abominable to me. It is so re-
pugnant to me that I shudder.
I see it back home where this juvenile delinquency crisis has
brought judges calling for boot camps for even a minor offender. So
I remember this very well, that we are going to find vacated army
bases and camps. And I couldn't believe it. You know, just because
the news was that some bases were being closed.
Finally, when the Secretary gave the list of those bases available,
well, they were up there in Montana in the mountains somewhere
and they certainly were not adapted to homelessness — let me put
it that way — or the homeless. So here we are again.
Finally it seemed to me that the council was jelling and you were
getting, at least on this level, an effective group. That is just the
impression I had. I am not party or privy to the ongoing aelibera-
tions. We had Mr. Talisman at the hearing we had tnis last spring
at a shelter here in the District, and he is always on top of things
and has worked on a comparative basis with tne council that he
put together. That is a tough task. I have seen how it has worked,
even in my own district.
So I was going to ask you, Mark, if you have any comments on
the reasons given.
Mr. Talisman. You know, it is interesting when you read the re-
port of the Senate Appropriations Subcommittee. It is as if, excuse
21
the expression, it is deja vu all over again. It is as if it is com-
mentary delayed from several years ago. That is the impression I
have because it doesn't relate to what is going on now. That is
what disturbs me.
The amount of money is life-giving for the council and when it
is cut off, that is it. But on the other hand, in the scheme of the
budget, it is small and easy to whack it out without much dif-
ficulty, notwithstanding the consequences; and that is the horrible
part that I find in all of this.
You said, Mr. Chairman, that you know a way to do it. I suggest
very strongly that there ought to be a communication with the
White House, with the Domestic Partnership Council, and with Mr.
Cisneros, with whom I think you have a great deal of familiarity,
if not geography, to get it back on track as soon as possible, be-
cause it seems to me to be an absolute critical time to have this
situation in limbo.
Chairman GtONZALEZ. You feel, then, that the interagency coun-
cil, and particularly now under able administration, should be
funded?
Mr. Talisman. There is no question about it. It is right at the
critical stage. It is in a developing stage on the upward track now,
which is an unusual statement to oe able to make.
In previous years we didn't have this high regard for this same
agency because of attitudes involved. There wasn't a strong desire,
as you cited, with President Reagan, making a statement that 50
percent of the people on the streets wanted to be there. There is
a difficult attitude. The American people have a very difficult atti-
tude.
Chairman Gonzalez. I agree.
Mr. Talisman. And it is the kind of situation in which it seems
to me that if this decision on the interagency council is allowed to
stand and there is no coordinated function from across the govern-
ment, at the very moment when success is in grasp in terms of
bringing things together but not only from the DC Initiative, but
the Secretary of HUD is establishing other initiatives across the
country, as he indicated at the Mitch Snyder shelter and other
places, it is literally cutting off" the oxygen from the whole process.
The whole thing is going to wither. And if this dies, we are going
to have to reinvent it in some form at an enormous cost to every-
body.
Chairman Gonzalez. Suppose, though, that, in reality, it is the
desire or the decision — maybe not yet announced but in the mak-
ing — that the White House be the one to direct this. If that is the
case, then funding wouldn't be any problem because I can tell you
it is available if the President wants to make it available through
his executive budget.
Mr. Talisman. Sure. But as I said, there have been some whis-
pers around town — I hope that it turns into a shout — that it is eas-
ily defined and easy to understand.
I don't think that this status of limbo ought to be allowed to con-
tinue at all. It is dangerous in and of itself since there are so many
different areas across the country and people who are dependent on
this free flow of information and modelmaking and other functions
that you know that the interagency council has performed.
22
And I also feel very strongly from my part, and I am going to
do my part in this regard, to find out exactly what went awry in
the Senate because I didn't understand it while it was happening.
I was told just the opposite, that things were fine, because a num-
ber of us were paying attention to this at the time. And all of a
sudden, in the middle of a rather intense period, as you remember,
where there wasn't a lot of sunshine, this happened.
Chairman Gonzalez. I will be anxiously awaiting to find out,
Mr. Talisman. There are three things that I have just concluded I
won't worry with. There is nothing I can do about it, and I don't
understand it. One is the weather; the other is women; and the
third is the Senate.
Mr. Talisman. In that order?
Chairman Gonzalez. I don't worry. They are there. And my wife
and I have been married 53 years, so it must have worked, you
know.
Mr. Talisman. I want to make one comment off the comment
that you made about Congressman Stokes. As you probably remem-
ber, his district was created from our old congressional district.
And my Member of Congress, Mr. Vanik, stepped aside into a new
district to create that district and the first African-American Con-
gressman from Ohio was elected; and it was he. And I don't know
of a person of better capability than he, and I know his commit-
ment on the subject. And it seems, as an intermediary, he would
be splendid to get involved because I know he has a nigh regard
for you and as the new chairman of that subcommittee and given
the situation in his home district in the center of Cleveland, this
is the last thing he would want, because I know that the inter-
agency function has been going on splendidly in the city of Cleve-
land ofiF of the national model. And none of that makes sense and
maybe he has a way to right this as well.
And given what you said, and that is what the administration in-
tends to do, if it intends to bring it within the executive branch,
the executive offices directly, and elevate the status in that respect,
because I think that would be good and not bad.
And I think they understand the piece of gold they have in Ms.
Martin. And I know her staff. It is clear across town that that is
true, and that is an important factor. I am not embarrassed to say
that. Normally, in teaching government, I don't want to place it on
the person involved; but in this situation, it made an enormous dif-
ference. The package is there, and the question is the place, as op-
posed to not having a place or a home.
Chairman Gonzalez. I certainly want you to know that I am
going to be working on it, and I will call you.
Well, Ms. Roman, I think you covered your statement so elo-
quently and well. But do you have any comments with respect to
the statement that now, later was incorporated into the Senate re-
port after the action was taken to eliminate the funding for the
council?
I think, if I gathered correctly your recommendation, you would
be in agreement with Mr. Talisman's last remark that if, yes, the
White House decided to put it on that level of priority, it would cer-
tainly enhance its effectiveness.
23
But do you have any comments as to what were the overlapping
functions, if any, that they are referring to now?
Ms. Roman. Well, I would not know how to interpret their state-
ment on that. I think that the council has started to function effec-
tively to deal with coordination.
There is no question that it needs to function more effectively.
I think that it is less important for us to look at where it has failed
in the past than to look at where the need is.
I really don't understand why, if we need the functions, council
fulfills, we should be terribly concerned with whether it has worked
well in the past. I think we have heard that it hasn't done a par-
ticularly good job in the past. It is on a new road. I agree with
Mark aoout Marsha's capabilities and qualities, and we are fortu-
nate in having her there. The bottom line is that there are areas
where we desperately need coordination, now.
Someone raised base closure. Base closure is a perfect example
of where we need coordination on homelessness. There are various
agencies involved and lack of discussion about what can be accom-
plished to help the homelessness through the use of base closure
properties, including housing.
Welfare reform is another area with major implications for home-
less people. We must have a concerted effort to address these is-
sues, and, without the council, we just won't; we won't have it.
So it is essential that we keep the council going. This next year
is one of the most critical times when we need to do more coordina-
tion; certainly not a time when we need to stop doing it. It is in-
comprehensible to me what thought was behind the Senate's action
in eliminating the council.
Chairman Gonzalez. Well, let me impress my own, and I am
sure every member of the subcommittee's, gratitude for your great
work and your organization's leadership.
Well, Mr. Gray, I will ask the same questions of you. Perhaps,
after that reaction, if I could ask you about the prospective grant
with respect to the DC Initiative.
But first I would like to get your comments on the action taken
by the Senate and, of course, later by the House.
I think the House Appropriations Committee was probably just
not aware, any more than we were, and that is the only reason I
can explain it, because I know Mr. Stokes's concern. He has cer-
tainly been a sea change with respect to our Authorizing Commit-
tee working with that Appropriation Subcommittee. We have a
real, genuine coordinated effort now, which I can't say has been
true all of these last years.
But anyway, Mr. Gray, if you have a comment, I would like to
have it.
Mr. Gray. Mr. Chairman, we certainly cannot explain the actions
of others around the Federal Interagency Council any more than
that my colleagues could.
However, I think we can speak to the relationship that we have
enjoyed in these last few months and the importance that the coun-
cil has been to the District of Columbia as we have attempted to
develop the DC Initiative.
I certainly would have to agree with my colleagues here at the
table that the leadership that Marsha Martin has brought to the
24
interagency council, along with the efforts of her staff has abso-
lutely been extraordinary.
I can compare that with the importance that we had prior to her
arrival and prior to the new administration. And our contact with
the Federal Interagency Council was sporadic at best. And not to
be pejorative, but the assistance that we received was minimal.
In the last 5 or 6 months I think it is no overstatement to say
that the District of Columbia and the interagency council's staff
have been in communication on a daily basis. We have had Ms.
Martin to our own interagency council meetings; and, frankly, lis-
tening to her was like listening to a professor in the classroom
teaching about how to address the problems of homelessness on a
national basis.
And other members of the staff worked closely with us in helping
us to begin sorting through the complex maze of problems associ-
ated with homelessness.
I think, again, looking at the tangible benefits, one of the roles
that the council was to play, and certainly has played with us, is
assisting us to access the resources of other agencies. Through
their efforts and those of HUD, too, as well, we have been able to
develop a relationship with action, and a part of our initiative will
bring to bear about 20 volunteers, VISTA volunteers who will work
with us on an outreach basis.
We have been able to open additional discussions with the De-
partment of Health and Human Services. And the people at FEMA,
the Federal Emergency Management Administration, has expanded
and improved as a result of their efforts. And we have opened dis-
cussions with the Department of Veterans Affairs, all of which
seems to me the most fundamental roles that the council was to
play.
They have been a source of information ; they have been a source
of assistance. And I think, really, the only relationship between the
current leadership and the council in the leadership prior to 1993 —
the only relationship I see is that they enjoy the same name.
Chairman Gonzalez. Let me, before I forget, compliment you
and, through you, the District and its governments through these
years.
From the very beginning I made a point to stress that the Dis-
trict of Columbia would be probably the most impacted area. It is
a magnet. It is going to attract people that other cities possibly
wouldn't. Therefore, the magnitude of the problem would be more
severe. Despite the Districts onerous job of trying to figure out
what a congressional committee is going to do as far as funding is
concerned for the overall District government, I have nothing but
praise for what has been done, which is about as effective as I
know any city government could.
There is always room for improvement in everything. I know
there have been criticisms and all. Just going over to the homeless
center here in the District, I could find a few. But they have noth-
ing to do with the District of Columbia's accepting ana confronting
the challenge.
I have noticed Ms. Roybal-Allard, a very active member of the
subcommittee. Even though this is her first year, don't let that de-
ceive you. She is the daughter of Congressman and Chair Roybal
25
of California. He followed me the following Congress when I first
came up, and so she has been bom and bred in this environment.
I recognize you, Ms. Roybal-AUard, if you have any questions or
statement.
Ms. Roybal-Allard. Thank you, Mr, Chairman. And I apologize
for being late, because this is a very important issue. I was very
concerned about the fact that the funding for the council was taken
away.
I am even more concerned now when I have heard the comments
that were being made that now it is starting to work, and that
there seems to be a real coordination in terms of making things
happen so that we are addressing the homeless issue.
In the interest of time, I would like to submit my opening
statement.
[The prepared statement of Ms. Roybal-Allard can be found in
the appendix.]
I have one question — and I apologize if it is repetitious and you
have covered this — but what is the one, or biggest, void that you
are going to see happen given your recent experience with the
council once it no longer exists? What is the problem that you are
anticipating?
And do you feel that HUD will be able to fill that void?
Mr. Gray. Was that addressed to me?
Ms. Roybal-Allard. To whoever wants to answer it.
Mr. Gray. From a local perspective, I think the coordinative
function that the council is playing for us in terms of access to
other agencies, serving as a clearinghouse for information, and
frankly in the case of the leadership at present, bringing extraor-
dinary leadership and expertise to the problems of homelessness,
in essence, as a local jurisdiction, we then would be left — perhaps,
depending on how this is defined in the future, of course, we would
be left with, once again, trying to wind our way through the myriad
agencies and processes in order to piece together funding sources
and programs that would allow us to comprehensively address the
problem of homelessness.
I think now, not to be redundant, what we are seeing is action
on the part of the council to really serve as a conduit for bringing
those efforts together to make it much easier for a jurisdiction like
ours to put together a comprehensive program.
Unless that is replaced, I think we will see ourselves backslide
tremendously in our work with the Federal Government to address
the problem of homelessness.
Ms. Roybal-Allard. Has there been any discussion with HUD
to make sure that they continue in this new mode with the council?
Mr. Gray. We have had no discussions with them. But I would
say that our working with HUD, around the DC Initiative, has
been wonderful. We see vibrant and renewed interest in this at
HUD. We have not had a discussion about how the function of the
interagency council would be replaced if the council disappeared.
Ms. Roybal-Allard. So there is some belief that HUD will con-
tinue in that mode and fill the void that the council is going to
leave?
Mr. Gray. Yes. Our relationship with HUD has been far superior
in the months of 1993 than it was previously.
26
Ms. Martin. If I could comment. The Secretary of HUD has
clearly identified homelessness as a number one problem for the
administration and HUD, and he has communicated to me that
HUD would continue the cooperating function of the interagency
council and retain its staff so that that function could be carried
out.
At this time, it is unclear what form it would take; and recently
there has been communication with the Domestic Policy Council.
And at some point there will be an announcement of the alter-
native structure of the interagency coordination activities.
Ms. Roybal-Allard. So the existing staff of the council, then,
will just be absorbed by HUD; and they will continue the work.
Is that your understanding?
Ms. Marten. That is the current discussion at HUD, yes.
Ms. Roybal-Allard. So we won't be starting from scratch. We
will be having these experienced people that will be taking over
this role under HUD?
Ms. Marten. That is the current discussion, yes.
Ms. Roybal-Alijvrd. Thank you.
Chairman Gk)NZALEZ. Mr. Castle.
Mr. Castle. Thank you very much, Mr. Chairman. Following up
on the previous line of questioning, I am looking at a memorandum
of October 21, that I am sure that you are familiar with, concern-
ing the Interagency Council on the Homeless from Carol Rasco,
who, of course, is the Assistant to the President for Domestic Pol-
icy; and it basically confirms what you have said here. And, in fact,
you are probably mentioned in here in a continuing role: The cur-
rent members will serve as the new working group of the DPC. The
Executive Director Marsha Martin could function in a joint capac-
ity as liaison to the DPC. Secretary Cisneros has indicated that
HUD will shoulder the cost of continuing the operations and ad-
ministrative coordination functions of the council. This arrange-
ment offers strengthened White House involvement on issues relat-
ing to homelessness as well as a neutral forum for the discussion
and resolution of interagency issues.
I, unfortunately, just arrived late to this hearing; and so I am not
familiar with everything that was said before. But is this in your
mind, or in the mind of anyone at the table, a satisfactory solution
to this problem? Or do you feel that we should go back to the origi-
nal funding and structure?
It seems that this is a more streamlined version and a better
way to function in order to get the White House more involved. I
don't have personal knowledge.
Mr. Talisman. It is an interesting idea. We just had a dialog on
it.
I think you are right, because the notion of elevating it — and it
would be an elevation if it were placed in the White House struc-
ture — would be good.
The key, from my perspective, in having created the interagency
council legislation in 1987 was to have a place of neutrality, that
is to say, among the agencies, to arbitrate and do the things that
are necessary, not that there are cat fights out there but, because
of the way things function, to be able to have a place like that was
a good idea.
27
To elevate it to the White House is a better idea, in my view, be-
cause of the President's own deep concern, along with a number of
cabinet officers.
The copy list on that memorandum is extraordinary. It is a
Who's Who.
Mr. Castle. I was not included in that list, by the way.
Mr, Talisman. Yes. I know. Me neither. But there is always
hope.
But the major point is to have response from those people who
are on the list — actually to have someone on the list pay attention.
I know that the Secretaries of HUD and HHS and Veterans' Ad-
ministration are deeply engaged in all of this.
But what is really interesting is there is no aspect of the govern-
ment that is not involved or should be involved and fully engaged
in the subject of ridding this country of homelessness and hunger.
And it takes a full-fledged coordination that is beyond one agency.
That is the point, so that if Ms. Rasco's intention can be followed
through and made real, that would be splendid, and there would
be a seamless kind of transition here.
Before you came in, we were talking about this very potential hi-
atus that could be created here right at the very moment that the
oxygen is finally flowing and there is hope out there as well as re-
alization in a number of ways that a lot of the initiatives are work-
ing. So we are in suspense at the moment except for this hearing
this morning that focuses a laser light on it, which is really helpful.
Mr. Castle. I appreciate your answer, and I agree with some-
thing that you said, that it is very, very important that these pro-
grams be coordinated. We tend to diffuse our efforts to help in so-
cial problems by different agencies and different groups looking at
it in different ways. I just didn't want to go down two parallel
tracks when there might be one ultimate and oest solution.
Mr. Talisman. There is one other comment I want to make be-
fore the hearing finishes. And that is that a lot of us who try to
work — and a lot of other people harder than I — on the subject of
homelessness and hunger in this country get very discouraged be-
cause, as you recognize, there is not a continuous, high-level focus
on the problem of homelessness. The index is when people in
Washington are people who go to work without noticing the shad-
ows around them anymore, /^d it is almost a 5-minute cvcle of at-
tention in the history of anybody's life during the year after which
it all disappears again. And the folks most in need don't have at-
tention paid to them.
And anything like that that allows to have the attention focused
in a serious way is really very vital for anybody out in the field try-
ing to do something desperately. Because, without harping on it
continuously, even if one isn't deeply religious, the notion that this
country would tolerate continuously this state of affairs for any of
its citizens is a mark of stain on this country. And so these hear-
ings are very helpful.
Mr. Castle. For those of us involved in the homeless issue — and
I was before on a local government level. I learned in the homeless
area in particular, we in Delaware, where I am from, are best
served by funding and working with the nonprofit religious agen-
cies who do this and not having the government directly involved
28
in it. The government never seems to do it particularly well. But
we have had some wonderful solutions in working with the min-
istry of CARE and other organizations in our State. And they have
had some public subsidization.
But the more we got government in a coordinating role and re-
moved from the direct delivery role, the better we did. And I think
it is a goal we should be pointing to in this and a lot of the very
difficult social delivery programs that we have in this country. But
I appreciate your testimony on this.
Thank you, Mr. Chairman. I yield back.
Chairman GfONZALEZ. Thank you, Mr. Castle.
Well, in the meanwhile, a real leader in housing has now arrived
at the hearing. Congressman Frank. This year he opted to become
chairman of the Subcommittee on International Development, and
everything else that goes with it. As a result he couldn't continue
his membership on the Housing Subcommittee. But he is really an
ex officio member of the subcommittee and has been the author of
the plan of the basic affordable housing amendments that we have
placed sometimes together. Sometimes he has done it individually
on everything from RTC to FDIC.
Mr. Frank also is on the Budget Committee. And I think he has
some good news for us here on some aspects of this.
Mr. Frank. Thank you, Mr. Chairman, for accommodating me.
Of course, you know it is always unfortunately the homeless areas
that are always the easy ones to come and talk at because they
don't attract as many of our colleagues.
On the other hand, I was sorry that I didn't get on to the Hous-
ing Subcommittee; but it was good news in one major way because
the reason I didn't get on was that the Housing Subcommittee be-
came the most popular subcommittee, after years before when ev-
erybody wanted to get on to Financial Institutions.
It was a pleasant surprise to find that before the bidding got
around to me, on the second round, that all of our freshmen Mem-
bers wanted to be on Housing.
We have been talking with the administration on the budget
package that they are announcing. As I was telling the chairman,
I did represent him in some of these conversations. We did per-
suade them to leave public housing alone because that is a very im-
portant and underappreciated asset for the American people. And
that is the area that we can report.
Other than that, I just wanted to come and acknowledge the
leadership of the people who are here and listen as we make our
effort to even find some more money next year.
Thank you.
We thought doing away with the council was a bad idea. When
the President came in December and asked for a homeless task
force and the Speaker decided to do that, I discussed it with the
chairman and the chairman designated Mr. Vento to head it. We
expressed our support for the interagency council at that time.
One of the things I was working on in the task force was the
whole problem of the welfare hotels. That is obviously something
that requires HUD and Health and Human Services to come to-
gether. There is no way to have a one-agency solution to the wel-
29
fare hotel problem. That requires flexibility in the AFDC spending
that HHS has and HUD.
And then you get the Veterans Affairs Department. No one who
knows this thinks that you can deal with this on a one-department
basis.
Mr. Talisman. Mr. Chairman, in that connection, I discussed pri-
vately with you, a while ago, a case in which an elderly man who
was disabled walked into a restaurant on the Hill where I was hav-
ing lunch and collapsed next to my table. And he told me the story
of naving tried 12 times of trying to receive his SSI benefits, taking
three buses to the Georgetown Social Security office.
As you know, when I worked here, I helped to create, for Mr.
Vanik, the Social Security and the Oversight Subcommittees of
Ways and Means, and had to handle these cases in our district in
northern Ohio. And this was a classic of noncoordination of func-
tions where the burden was on a 71-year-old man who couldn't
walk, and he was due by law, according to the way I knew the law.
Hopefully, this kind of function we have been talking about this
morning will allow the coordination that Mr. Frank is talking
about to take place as a direct consequence of the initiatives in-
volved, in addition to a niceness factor developing among those on
the other side of the counter who are facing off people who really
need help.
Chairman GrONZALEZ. Ms. Roman.
Ms. Roman. I wanted to make one comment about the letter
from the White House and Carol Rasco in terms of the continuing
efforts of the council.
We would want to know what the structure of that continuing ef-
fort would be. If we are contemplating a task force in HUD but re-
porting to the Domestic Policy Council, we think structurally it
would De difficult for it to actually function in an interagency way.
Our organizations would like to see what the recommendation is
in more detail before we would feel comfortable that the important
functions of the council, particularly in terms of the Federal plan
and coordination and monitoring of the programs, could be
performed.
Mr. Frank. If I could, as I read this, they appear to be aware
of that danger and not be moving that way when they ask that the
current members serve as a work group for the Domestic Policy
Council. HUD would be funding it.
Ms. Roman. If it is, in fact, a part of the Domestic Policy Council,
that is very encouraging.
Mr. Frank. The memo says, "as a neutral policy forum." That ob-
viously means not one department. Not neutral on the question of
homelessness. I would like for them to be at least leaning against
homelessness. I assume they are.
But when they say "neutral," I assume that means departmental
neutrality and a working group of the Domestic Policy Council.
Ms. Roman. If that is the case and that is the way it plays out,
we would support that structure.
Mr. Talisman. It would be nice to get that affirmed from this
subcommittee to the Domestic Policy Council.
Chairman Gonzalez. Coming back to your other observation
about coordination or lack thereof, I will go further. When we went
73-385 - 94 - 2
30
to the shelter for the hearing, I stayed — because members in the
audience, that is those in the shelter and others, wanted to be
heard. So I stayed there until about 3:45 p.m. and found out, for
instance, that, after we saw real nice, clinical facilities and cooking
and all that they were serving only one meal, and had been serving
only one meal.
Then I had a precious little lady, very grandmotherly, who want-
ed to be heard; and it seems that she wanted to know: First, why
that it was one meal, and that it wasn't very nutritious and; sec-
ond, why couldn't she be in a position where she could cook her
own fooa?
Well, of course, you know the answer to that. But, then I asked
her, how long she had been there and why, and where was her
home? Actually, her real home of record or residence was over in
Maryland somewhere. She had been in the District and came to the
shelter about the first month in January. But she had first tried
to get into elderly housing. Now, there was no reason why that
lady should be in an emergency shelter.
Then, two relatively young persons — well, in their thirties, mid-
dle or late, they asked to be heard. One of them said, "hey, did you
know that efforts are being made to kick us out of the shelter?' So
then that brought forth Ms. Carol Fennelly who said that what this
person hasn't told you is that he has brought a suit to prevent us
from evicting him. He had been there over 4 years.
You know, now, Mark, from the beginning, I said that if we were
going to go into this palliative, known as program to help the
homeless, that it should be, yes, emergency but temporary and that
we should then concentrate on the root causes. So that brought me
to several conclusions.
By the end of 1982, the statistics on foreclosures on homes was
alarming. In Pittsburgh, it had reached over the peak point of the
Depression period. That is, foreclosures on single-family dwelling
units where families were being pushed out. That was when we
first heard from the sheriff from Ohio, who is now the Congress-
man, Traficant, who became famous because he refused to fore-
close, serve eviction papers. We brought him here, and he
testified.
In Pueblo, Colorado, where the steel mill was closing, they were
foreclosing and evicting at the rate at over 100 a month. You can
imagine my sadness and whatnot when the following year, in the
winter in San Antonio, while visiting the lineup of the homeless
trying to get in at 6 p.m. to get a meal and sleep overnight, I met
this young man, 37 years of age, who had parked his wife and kid
with his in-laws and was headed south of San Antonio to see if he
could find employment. He had lost his home in Pueblo, Colorado.
So there is such an interconnecting thing that this subcommittee
really has oversight of For instance, who would say that one of the
reasons we are bringing forth the Federal Reserve Governors and
the presidents and the Open Market Committee is because it is di-
rectly connected with this?
You say, what connection can there be? Everything. Interest
rates; the value of the dollar. Nobody wants to discuss the fact that
the dollar has lost two-thirds of its value in just 15 years as
31
against the deutschemark and the yen. And you say, what has that
got to do with this? It is everything.
I hope by the time we finish our hearings people will realize why
we should be more than just a little bit interested in the goings on
there. You have people being thrown out of their homes, for in-
stance, in my own area, even though two of them are not in my
district, they are in the adjacent district — thank the Lord, we have
been able to keep four widows in their homes. Each one hasn't been
widowed more than 3 years. Fortunately, thev involved FHA loans.
And it took a lot of doing to get the use of tne TMAC Program. It
hasn't been used by the other administrations. I think this is the
first administration we have been able to get to use it, to save this
woman in her home. Otherwise, when she visited HUD IV2 years
ago, realizing she was going to be facing a problem with the mort-
gage company, the HUD official there said, look, I had to face the
same thing; I couldn't face my payments; so I am living with my
mother. She was told she had to do the same thing. However, now
we have a new Secretarv — and I might say, Mark, you mentioned
that I knew him. Yes, I have known his family since before he was
born, and I have known him since he was born. And you may have
read some stories in some of the commercial press or industry
press about there being differences. Well, I don't know who or for
what reason something is being attempted to be stirred up. How-
ever, there is not going to be any. There never has been before, and
there certainly isn t any now.
But certainly he was sensitive to this eviction problem, and he
was able to get the district director to say, wait a while. Would this
woman qualify for a mortgage assignment program? She did and
that was one case. Then we had three others.
Now, do you think the mortgage companies were going to fore-
bear? Why, they weren't about to miss a chance to grab that home
and make a lot of money on it. And so here we are now, full circle,
trying to do something about a humiliating thing as far as we
Americans are concerned. And the invisible ones — which you re-
ferred to in the doubling up — all around the country you have fami-
lies two, three, living in one single-family shelter.
So here was this lady at the District shelter. I had the staff do
what we could and we have very limited staff. They went and
talked to her and talked to the director, and asked, "Why are vou
serving only one meal when we had the hearing in 1984." Tney
were serving three squares then. She said it was because of lack
of money.
Now I want to get to the DC Initiative. In the Washington Post
article of September 21, which I asked to be placed in the record
at the outset, the headline is "HUD Targets Homelessness In Dis-
trict, $20 million Committed To Pilot Program in City." Then it
gives actually the intentions.
Now it does say, though — what you said, Mr. Gray — that HUD,
as a condition, mandated that the city have a specific or a new
agency to handle that money. The disturbing thing is that the re-
porter quoted Carol Fennelly, who said, "she is concerned about
moving homeless people off the streets. There are certain activities
that are unconstitutional and illegal. We don't support the entire
report," she said, referring to the implementation plan. And then
32
referral is made to the fact that there would be involuntary com-
mitments. But questions are raised as to whether the funding is
adequate, the possible involuntary commitment of homeless people,
and the use of police officers to move homeless people off the
streets.
Now The New York Times said the same thing in their report.
Now, I wrote the Secretary and he responded that categorically
that he was sensitive to my sensitivity about civil rights and that
wasn't the intent, and so forth. But why these reports? They seem
to be very positive, regarding the likelihood that that could happen.
Is that true, Mr. Gray?
Mr. Gray. Mr. Chairman, let me say unequivocally that there is
no intent on the part of this initiative, the District government or
the Federal Government, to subject any people who are homeless
to involuntary commitments unless they meet the existing condi-
tions of our mental health laws. The Urban Act governs those deci-
sions in the District of Columbia.
Perhaps in the initiative we were not as clear as we might have
been in stating what our intent is. But first of all, our intent is to
expand our outreach efforts to make additional efforts to try to in-
duce people who are homeless, especially the hard to reach popu-
lation, to come into services. That will be through expanded out-
reach using Action volunteers, VISTA volunteers. It will be through
contracts that we have already begun to establish with nonprofit
organizations to actually have, what I would refer to as street case
managers to develop relationships with people who are homeless,
to begin to bring them into the new drop-in centers that we envi-
sion, and hopefully to encourage them to take advantage of serv-
ices. There is absolutely no intent on our part to involuntarily
bring people into a commitment status or into services.
In fact, the reference to police officers in the plan was an effort
on our part to try to indicate that we wanted to work with the met-
ropolitan police department, especially as it moves forward with its
community polices efforts, to help them understand what it means
to be homeless, to help them better understand how to develop
some minimal relationships with people who are homeless and also
to understand what service systems there are for people who are
homeless in the District of Columbia so that they can, in fact, en-
gage in some transition efforts to move people into services.
Again we are not changing the Urban Act; we are not stepping
up any efforts to subject people to involuntary commitments. Our
efforts will be on the end of encouraging people to become a part
of our service system, unless, again, they meet the criteria of either
becoming a danger to themselves or to others.
In the last analysis, if all of our efforts fail, then they will con-
tinue to enjoy all the constitutional and civil rights that the citi-
zens of this Nation enjoy. So there is absolutely no intent to imple-
ment an initiative to involuntarily bringing someone into the serv-
ices under some form of commitment.
Chairman Gonzalez. HUD, as a precondition mandated that the
District create an agency specifically to handle that money?
Mr. Gray. Yes, Mr. Chairman, we have referred to it thus far as
"the entity" because the details of that are still in the formative
stages.
33
One of our eight task forces that has now been in place for 3 or
4 years is working specifically on that effort. I think, using the Vice
President's National Performance Review as the backdrop, I think
we too, at the State and local level, certainly would like to find
ways to streamline bureaucracy in ways that get things done more
quickly.
Like many jurisdictions, the District of Columbia government
finds its personnel and procurement processes to be extraordinarily
cumbersome and time consuming. Literally months may elapse be-
fore we can hire somebody or move to a contractual relationship to
get services performed. We, too, already have moved substantially
to a system in which the direct services are provided by the private
sector, largely by the nonprofit sector. In fact, as we outsource as
you know, our hypothermia services, the District government, then,
as of November 1, will be engaged in no direct service delivery at
all.
So recognizing that that is a service delivery strategy that we in-
tend to pursue, we are looking for a mechanism that will make
that happen in a streamlined and expeditious fashion. So the
thought is to have a nonprofit corporation or a quasi-private cor-
poration with a board of directors that would be empowered to en-
gage in the coordination of the DC Initiative to engage in the con-
tracting process, if you will, with the service delivery system and
also, perhaps, to engage in some creative efforts around creating
more affordable housing so that we can move some of the glut out
of our emergency shelter system at present.
Mr. Gray. So again the entity is not fully defined at this stage.
It will be over the next 3 montns. It then will be submitted to trie
council of the District of Columbia for whatever action has to be
taken and, hopefully, will be a reality within the next several
months.
Chairman GrONZALEZ. Do you have any idea as to just what level,
percentagewise, of that first year's $7 million would go for over-
head, administrative costs?
Mr. Gray. I think virtually none. As a matter of fact, we will live
within the regulations that HUD will develop for what can be de-
voted to administrative costs; but virtually all of our Federal pro-
grams now restrict us to 5 to 7 percent of whatever the pool of
money is for administrative costs.
Also moving increasingly toward a service-delivery strategy in-
volving the nonprofit sector, we would envision there being very lit-
tle or no money being devoted to government functions; and that
money would be out into the community in private sector organiza-
tions providing services. We also intend, through our own procure-
ment laws, to ensure that even those organizations are restricted
to a certain ceiling with respect to their own indirect costs and ad-
ministrative overhead.
Chairman GONZALEZ. Ms. Martin stated in her portion of the tes-
timony, having to do with the initiative that these activities would
be contracted for. Now, how is that going to be done? Is that going
to be done HUD/District iointly or
Ms. Martin. It would oe through the new entity that Vince Gray
has identified. They would have the primary responsibility for the
coordination of the services, development of new facilities, and
34
would be setting up the contractual relationships with the non-
profits on the community level. So the Federal Government would
not be directly contracting with nonprofits at all.
Chairman Gonzalez. Well, the report says that $20 million
would be given to the District with no strings attached; but if that
is the case, it would leave it up to the District to judge whether
they needed a new agency or whether they could work with what
administrative setup the District already has.
Second, the report says that by 1995 more than 2,050 individuals
and families in the District will receive permanent housing, treat-
ment, or job training according to the plan.
Now, what percentage would you envision of these monies being
diverted for that use if you have $7 million the first year — and how
much, subsequent years?
Mr. Gray. Seven the first year, seven the second year, and six
the third year.
Chairman GONZALEZ. That is for a 5-year period stretchout; is
that correct?
Mr. Gray. Well, it is a 3-year period.
Chairman Gonzalez. Three-year?
Mr. Gray. Yes.
Chairman Gonzalez. How much of that do you think you are
going to have for construction?
Mr. Gray. Well, again, the details that are being fleshed out at
this point, HUD is in the process of developing regulations to gov-
ern how the money will be used.
One of the things that we see the opportunity
Chairman Gonzalez. Well, excuse me. If that is the case, then
how can it be money with no strings attached?
Mr. Gray. Well, the report I think does, Mr. Chairman, indicate
the funding is predicated or conditioned upon the District estab-
lishing an entity that we talked about earlier; and also, in order
to receive the second year funding, we must accomplish the first-
year goals as set forth in the plan with respect to the number of
beds that are to be developed. So there are conditions for us receiv-
ing the funding, so that we can measure whether there is progress
achieved in the expenditure of funds at points of demarcation along
this process; so at the end of the first year, there are two very clear
conditions that we would have to have met in order to be able to
be eligible for second-year funding.
With respect to the percentage that will be devoted to construc-
tion or housing versus services, that again is being fleshed out and
determined at this point. One of the opportunities that we see in
the District of Columbia is the opportunity to devote more of our
resources to the service side.
Even though we have spent millions of dollars on services to peo-
ple who are homeless, we recognize that those resources have been
expended largely in an emergency shelter system and largely on
the housing function, either for buildings to house singles or, until
we moved away from it, the rental of hotels and motels; and even
now the rental of apartments.
We think with the opportunity created by this initiative we can
begin to create more permanent solutions, both through transi-
35
tional and permanent housing. The resources through the initiative
would provide us an opportunity to do that.
We are fully committed to maintaining the current budget level,
the current enort in the District of Columbia, but we are also just
as committed to redeploying those resources so that more of our
dollars can be devoted to the resources and services, more of the
services that we know must be put in place if we are to truly have
a continuum of care.
Chairman Gonzalez. Fair enough. Because they have these very
definite statistics as to what this money is going to do, then you
have, well, if you do this the first year, well, then you get this the
second year; and it seems to me that that has always been the
problem. For instance, in the first year, 1981 when we got the first
budget, it is the only time that a nonbudgetary committee ever had
the Director of the Budget, Mr. Stockman, testify; and he later said
that he regretted he came up here because he got on the record.
But it seems to me, and I hope it isn't the case here, that it is
the old storv of the old mythical city of Podunkville where the city
fathers made a decision to build a new school house, but they had
two conditions. First, you could not tear down the old until you
built the new, but you couldn't build the new unless you used the
material fi-om the old, so, you know, what have you got? You've got
nothing.
So I am for accomplishing what the Secretary says he wants to
do; and therefore, I would be very grateful if we could look to hav-
ing some information fi-om time to time — without any burden; I
don't want any undue burden — that we could receive from you. For
instance, when the city council acts on whatever plan is presented,
it would be helpful to us to have a report of that and the nature
of the setup.
In the meanwhile, you have been most patient; and it is a little
before noon, so I think you have enough time where you can get
over and have a bite to eat, and I wanted to thank you very much.
Your testimony is being given to all the members of the
subcommittee.
These are veiy mixed up times, believe it or not, even at the be-
ginning of this Congress; and so some of the Members had at least
two other meetings to attend. But I, for one, want to express mv
profound gratitude to each and every one of you; and I, in turn, will
communicate with you on the decision we make very soon as to
how we will proceed to make sure that the entity really stays alive
and ascertain exactly what it is the administration would be ame-
nable to. I don't want to act unilaterally without knowing that that
is what the administration wants.
So thank you very much. Unless any of you have any additional
statements or observations, we will then consider the subcommittee
adjourned until further call of the Chair.
Thank you very much.
[Whereupon, at 11:44 a.m., the hearing was adjourned, subject to
the call of the Chair.]
37
APPENDIX
October 26, 1993
38
OPENING STATEMENT OF CHAIRMAN HENRY B. GONZALEZ
HEARING ON THE INTERAGENCY COUNCIL ON THE HOMELESS AND THE DISTRICT OF
COLUMBIA HOMELESS INITIATIVE
Tuesday, October 26, 1993
I HAVE CALLED THIS HEARING IN ORDER TO ASSESS THE IMPACT OF
THE RECENT ELIMINATION OF FUNDING FOR THE INTERAGENCY COUNCIL ON
THE HOMELESS AND TO HEAR TESTIMONY ON THE DISTRICT OF COLUMBIA
HOMELESS INITIATIVE.
THIS HEARING REPRESENTS THE SUBCOMMITTEE ON HOUSING AND
COMMUNITY DEVELOPMENT'S LONG-STANDING EFFORTS TO HIGHLIGHT THE
NEED TO ADDRESS HOMELESSNESS ON A LONG-TERM BASIS WITH PERMANENT
HOUSING SOLUTIONS, THROUGH A COHESIVE AND COORDINATED FEDERAL
RESPONSE. THIS SUBCOMMITTEE WAS THE FIRST TO HAVE MAJOR HEARINGS
ON HOMELESSNESS IN AMERICA IN DECEMBER 1982 WHICH BROUGHT
NATIONAL ATTENTION TO THE PLIGHT OF THE HOMELESS.
THE SUBCOMMITTEE RECENTLY HELD A HEARING ON HOMELESSNESS IN
THE DISTRICT OF COLUMBIA ON APRIL 23, 1993, IN THE COMMUNITY FOR
CREATIVE NON-VIOLENCE (CCNV) SHELTER. THE SUBCOMMITTEE ALSO HELD
A MARCH 23, 1993, HEARING ON THE NEED FOR PERMANENT HOUSING FOR
THE HOMELESS AND HEARD TESTIMONY FROM HUD ON TWO SEPARATE
OCCASIONS REGARDING BOTH HOMELESSNESS IN THE DISTRICT OF COLUMBIA
AND THE INNOVATIVE HOMELESSNESS INITIATIVES DEMONSTRATION
PROGRAM .
WITH THE ELIMINATION OF FUNDING FOR THE INTERAGENCY COUNCIL,
I AM CONCERNED THAT THE FEDERAL GOVERNMENT HAS NOW LOST AN
IMPORTANT SOURCE OF COORDINATION AND DISSEMINATION OF INFORMATION
ON VITALLY-NEEDED FEDERAL PROGRAMS TO ASSIST THE HOMELESS IN
LOCAL COMMUNITIES AND STATES ACROSS THE UNITED STATES. I AM VERY
39
CONCERNED THAT THE FEDERAL GOVERNMENT ALSO NOW LACKS A SUFFICIENT
FEDERAL RESPONSE AND COORDINATION OF FEDERAL PROGRAMS TO ASSIST
THE HOMELESS.
I ALSO REMAIN CONCERNED ABOUT MEDIA REPORTS THAT SUGGEST
THAT THE D.C. HOMELESS INITIATIVE WILL REPRESENT THE INVOLUNTARY
REMOVAL OF HOMELESS PERSONS FROM THE STREETS OF THE DISTRICT OF
COLUMBIA. WHILE IT IS ENCOURAGING TO SEE AN ADMINISTRATION
VIGOROUSLY WORKING WITH LOCALITIES TO PLAN AND IMPLEMENT
STRATEGIES TO COMBAT HOMELESSNESS, I BELIEVE THE D.C. HOMELESS
INITIATIVE IS A LIMITED EFFORT THAT FALLS SHORT IN ADDRESSING THE
LONG-TERM NEEDS OF ASSISTING THE HOMELESS IN THE DISTRICT.
I AM ALSO CONCERNED THAT THERE ARE VERY FEW DETAILS AS TO
THE NUMBER OF ACTUAL HOUSING UNITS WHICH WILL BE PROVIDED ON A
LONG-TERM BASIS TO HOUSE THE HOMELESS, AND THE EXTENT TO WHICH
THIS INITIATIVE WILL ONLY BE USED ON A SHORT-TERM, 2 YEAR BASIS,
AND NOT ON ADDRESSING A LONG TERM SOLUTION TO END HOMELESSNESS IN
THE DISTRICT OF COLUMBIA.
THE SUBCOMMITTEE HAS AUTHORIZED BOTH OF THESE PROGRAMS. THE
INTERAGENCY COUNCIL ON THE HOMELESS WAS FIRST CREATED BY THIS
SUBCOMMITTEE IN THE STEWART B. MCKINNEY HOMELESS ASSISTANCE ACT
OF 1987. IT WAS REAUTHORIZED IN THE 1992 HOUSING ACT FOR FISCAL
YEAR 1994 AT $1.5 MILLION. THE INTERAGENCY COUNCIL HAS 17
FEDERAL AGENCIES AND DEPARTMENTS REPRESENTED ON THE COUNCIL, AND
DISSEMINATES INFORMATION TO LOCALITIES AND STATES ON ALL FEDERAL
PROGRAMS THAT ASSIST THE HOMELESS. DESPITE THIS AUTHORIZATION,
THE RECENT FISCAL YEAR 1994 VA-HUD APPROPRIATIONS ACT FAILED TO
FUND THE COUNCIL RESULTING IN PREMATURELY TERMINATING AND
40
STOPPING THE COUNCIL DEAD IN ITS TRACKS.
THE DISTRICT OF COLUMBIA HOMELESS INITIATIVE IS THE FIRST
HOMELESS DEMONSTRATION PROGRAM ANNOUNCED BY THE DEPARTMENT OF
HOUSING AND URBAN DEVELOPMENT UNDER THE INNOVATIVE HOMELESS
INITIATIVES DEMONSTRATION PROGRAM WHICH IS CREATED UNDER THE HUD
DEMONSTRATION ACT OF 1993. THE HOUSE OF REPRESENTATIVES PASSED
THE HUD DEMONSTRATION ACT ON OCTOBER 6, 1993, AND WE ARE NOW
AWAITING THE PRESIDENT TO ENACT IT INTO PUBLIC LAW.
I NOW LOOK FORWARD TO THE TESTIMONY BY THE PANEL OF WITNESSES
WE HAVE BEFORE US.
41
OCTOBER 26, 1993
OPENING STATEMENT
BY CONGRESSMAN BRUCE F. VENTO
AT THE HEARING OF THE HOUSING AND COMMUNITY
DEVELOPMENT SUBCOMMITTEE
ON THE INTERAGENCY COUNCIL ON THE HOMELESS
AND THE DC HOMELESS INITIATIVE
Thank you, Mr. Chairman, for holding this timely hearing today
to discuss the issues surrounding the future of the Interagency
Council on the Homeless, developed with the original Stewart B.
McKinney Act of 1987, and the D.C. Initiative for the Homeless that
was just recently developed at the direction of HUD Secretary
Cisneros . - :
As a supporter of the concept and of the Interagency Council on
the Homeless, itself, I was disappointed at the action of the VA/HUD
Appropriations Conference to defund the Council and its activities.
While the Council has not been a perfect entity in the past, it has
performed an important role and the ICH could and still can have a
promising future in the new Administration. In the past, there
may have been a disconnect between the theory for an ICH and the
performance. Nonetheless, this is a clear example where we oughtn't
throw the baby out with the bathwater -- defunding the Interagency
Council on the Homeless will not bring about better communication,
cooperation between departments. Nor will it direct the various
Departments to acknowledge and act upon their responsibility to
people in our society who are homeless. Ironically, Vice President
Gore's National Performance Review actually recommends this type of
42
agency for the homeless issue - and the ICH should not have to be
killed and pronounced dead to be reinvented --or should I say-
resurrected!
Several Members of the Speaker's Task Force on the Homeless,
including Chairman Gonzalez and myself, signed a letter (which I
would like to include for the Record) to encourage the
Administration to fully cooperate, support and maintain an
interagency effort in the form of a homeless council, a task force
or an otherwise appropriate body until such time as the council can
have the funding restored.
The termination of explicit funding for the ICH could be a set-
back for federal programs for the homeless and for the federal plan
that was ordered by President Clinton in May. I hope we will learn
today whether such plans and recommendations have been formulated by
the ICH. Our Speaker's Task Force letter recommends that to the
extent the Departments are able, that they detail and/or designate
staff for an interagency effort to promote continued communication
and coordination between federal agencies and departments. This
group of detailees/designees could be formulated under the auspices
of or at the direction of the Executive Office of the President to
43
assure a high priority for the needed interagency efforts.
Again, I'd like to thank Chairman Gonzalez and our witnesses
today. I look forward to the testimony and to a continued dialogue
on the Interagency Council, the D.C. Initiative and all federal
policies to prevent homelessness and assist persons in our country
who are homeless. ' '
44
The Honorable Lucille Roybal-Allard
Statement
on the
Interagency Council on the Homeless
&
District of Columbia Homeless Initiative
Subcommittee on Housing and Community Development
October 26, 1993
Mr. Chairman,
Thank you for holding this hearing on the Interagency Council
on the Homeless and on the District of Columbia Homeless
Initiative.
I would like to welcome our distinguished guests and thank
them in advance for their testimony and for their efforts on behalf
of the homeless .
I followed with great concern, as I am sure other members of
the committee did, the process by which the Senate and House
Conferees decided to eliminate the funding for the Interagency
Council on the Homeless. I realize that in the past the Council
has not always lived up to its full potential.
However, with a new secretary at HUD and with new leadership
in the White House, we were beginning to see positive signs that
the Council was on its way to becoming truly effective. Now, with
the demise of the Council, the future of interagency cooperation on
homeless issues is uncertain.
Everybody agrees that just providing a bed for the night is
not a solution to homelessness . We must attack the root causes of
homelessness , such as, inadequate education and job skills,
substance abuse, and mental illness.
If we are to be successful in the fight against homelessness,
we must work in partnership with state governments, local
governments, nonprofits and the private sector. We must develop a
cooperative and coordinated approach to the problems of
homelessness, if we are to have a chance of success. The
Interagency Council on the Homeless is critical to our
accomplishing these goals and in eliminating the Council, I believe
the Conferees have made a mistake.
With regard to the District of Columbia Homeless Initiative,
it is the first of what I hope will be many initiatives that take
an integrated and coordinated approach to eliminating the causes of
homelessness .
We must do everything in our power to solve this
nightmare of homelessness and I look forward to working with the
Chairman and members of this committee to accomplish that goal.
Thank you, Mr. Chairman.
m
STATEMENT OF MARSHA A. MARTIN
EXECUTIVE DIRECTOR, INTERAGENCY COUNCIL ON THE HOMELESS
BEFORE THE SUBCOMMITTEE ON HOUSING AND COMMUNITY DEVELOPMENT
OF THE COMMITTEE ON BANKING, FINANCE AND URBAN AFFAIRS
OCTOBER 26, 1993
Mr. Chairman and Members of the Subcommittee:
I am pleased to appear before you today to discuss the ,
Interagency Council on the Homeless and the Dxstrxct of Columbia
Homeless Initiative.
Homelessness remains one of the toughest problems facing this
country. Although public and private agencies and volunteers
operaS numerous programs that provide sorely ^^^^^f,^^^,^^^^^^^'
much work remains to be done. The country has suffered from a
tremendous dearth in leadership on the subject of housing and
homelessness. The promise that President Clinton and this
AS!i!s?rItion brought to countless Americans sleeping on the
streets, in cars, transportation centers and other non-habitable
places was truly inspiring and refreshing to me.
Early on. Secretary Cisneros made clear his intention to
respond to homelessness. Not only did he make trips to shelters
and^?o the streets, asking those most affected by homelessness what
thev needed, if anything, and how he could make a difference at
they "^^f '^'^j^, .^ y discussed the need to address homelessness
starting with the Federal agencies, not ending with them With
that. Secretary Cisneros made reducing the number of homeless
families and individuals his number one priority. Then, as a solid
sign that this Administration was taking the issue of homelessness
head on, the Secretary appointed Andrew Cuomo, whom I had worked
w!?h closely in New York City and whose dedication and relentless
efforts to provide housing for literally thousands of formerly
homeless persons served as a model for all of us in our effort to
address this complex issue.
Finally, Secretaries Donna Shalala and Jesse Brown, whose
agencies administer programs of significant importance in
preventing and ending homelessness, have both demonstrated a
firm commitment to help those most in need in our society.
46
My career has allowed me to develop expertise as a provider of
services to homeless individuals and families, as a social work
ho^^ff^o^'' ^'''' educator, and as an innovator and administrator of
homeless programs for Mayor David Dinkins in New York City. I have
a^tho^fn consulted extensively across the United States and
authored numerous articles on homelessness .
I did not expect to leave New York, but, Mr, Chairman anrf
cttntnl AH '■■^^- S,^^"'.™"^"^,^' -hen given the opportunity to ToTn ?he
ti wM^h ?''>r'^^''H''^°Z' T"^ ''° ""^^^ ^" ^P^^t nationally in an area
Jh^Tw • ^■^''^ devoted my professional life, I did not have to
think twice m making my decision.
iqR7 nnJo°^" 1^k°'''cJ'^^ Interagency Council, which was established in
1987 under the Stewart B. McKinney Homeless Assistance Act is
lut^nt^t"" °Kl''t ^^^^! °' ^' ^^^^"1 agencies that have pJogr^'s o?
authorities that can be used to assist homeless people. Currently
?ul^tLf f/" °i ""r ^" W^^hington, and we are ^assisted by teA
full-time Regional Coordinators who have been detailed to the
Council by HUD. The Housing and Community Development Act of 1992
reauthorized the Council through October 1, 1994
The first meeting of the Council during the Clinton
wS'elictid'°."h ""' ^"'^ ""."^"^ ''' ''''' «"° Sec?eta?J Cis^eros
was elected chairperson and Secretaries Donna Shalala and Jesse
Brown were elected Co-Vice Chairs. On the same day, President
Clinton issued an Executive Order that directed the 17 agencies
that comprise the Interagency Council to develop a single
aSd fo. Pl^n for breaking the cycle of existing homelessniss
K f°r preventing future homelessness. The plan is to be
datrofthrorSlr'""''^""' '" ""^""^^ ''''' '^^"^ ^°"^^^ ^^^ ^S
, ?^"=® that meeting, we have worked to establish a short- and
^h2H:^^™ agenda, obtain input for the new Federal Plan, and
Identify new directions and priorities. We have continued to:
o develop and distribute numerous publications
to assist State and local governments and homeless
providers ;
o sponsor regional technical assistance workshops and
interac tive forums to provide up-to-date
information on Federal programs and an opportunity
for service providers to share information on workable
homeless assistance strategies; and
work with the General Services Administration to
transfer surplus food to nonprofit organizations
serving the homeless.
o
47
We have also worked to:
o make the Council a more effective advocate within the
Federal Government for homeless
people and the nonprofit agencies that provide
services to them;
o conduct a thorough review of the existing program
structure and proposed administrative and legislative
changes where they are warranted;
o identify gaps in the current continuum of care as
well as additional opportunities for integrating
systems, improving targeted homeless assistance
resources, and increasing access to mainstream
Federal low-income assistance programs;
o work closely with State and local governments to
share models of effective interagency program
coordination and increase their capacity to develop
effective local solutions; and
o redesign our workshops to enhance the level of
technical assistance and substantive interaction among
the participants .
The Council serves an important role in bringing together
Federal agencies to coordinate diverse policies, programs, and
issues for various homeless populations. It brings together
Cabinet-level officials and senior staff from the member agencies
to identify opportunities for improving delivery of programs and
services. The Council also serves as a central resource for
essential information for organizations serving homeless people.
The Clinton Administration holds addressing homelessness as a
high priority. As you may know, the President included funding for
the Interagency Council in his FY 1994 budget request, and
Secretary Cisneros wrote to the House and Senate Appropriation
Subcommittees on VA, HUD and Independent Agencies supporting the
requested funding and expressing the need for the coordinating
body. The White House, through the Domestic Policy Council, HUD,
HHS, VA and the other member agencies of the Council remain firmly
committed to the continuation of interagency coordination and
activities. As soon as the Administration became aware that the
Council would not be funded, it began examining a range of options
to continue the Interagency Council mission and its interagency
coordination and activities. It is my understanding the
Administration will make an announcement shortly on the specific
plan to accomplish this.
Because of your specific interest in the D.C. Initiative, I
want to take a moment to speak about it. Secretary Cisneros and
48
D.C. Mayor Kelly recently announced their intention to develop,
fund and implement a dramatically different approach to
homelessness in the District. This effort, the D.C. Initiative,
would serve as a national model for restructuring the Federal/local
relationship in addressing homelessness.
As Chairperson of the Interagency Council on the Homeless, HUD
Secretary Henry Cisneros invited the 17 member Federal agencies to
join in this effort. The D.C. Initiative has dravm upon this
unprecedented Federal and local government partnership, as well as
local and private sector participation. A series of joint planning
sessions and subcommittee meetings coordinated by HUD, the Council
and the District Government were held with non-profit housing
developers, service providers, advocacy organizations, homeless
individuals, private foundations, neighborhood groups, local
businesses and the investment banking community.
The recommendations of D.C. Initiative call for implementing
the following objectives:
o Replacing the current system of "shelters" with an approach
that distinguishes between the diverse needs of homeless
families and individuals, and employs a continuum
of care model that consists of (1) comprehensive outreach and
assessment, (2) transitional rehabilitative services, and
(3) supportive permanent housing designed around the specific,
individual needs of homeless families and individuals. The
system includes strengthening efforts to prevent homelessness.
o Recognizing the need for effective administration, and
"reinventing" the management structure by streamlining
existing government efforts and establishing a new
public/private entity to coordinate and finance the
implementation of the new homeless assistance system.
o Entering into a social contract by which the government
is willing to provide services to homeless persons in
need, and the individual or family is responsible for
participating in an effort to gain independent living
skills and avail themselves of services and housing
offered to them.
o Recognizing the concerns of residents and businesses, as
well as the well-being and need for improved living conditions
of persons who are homeless, the Initiative seeks to end the
use of public spaces by homeless persons as residences of last
resort through a sensitive program of outreach and a continuum
of care.
49
o Increasing the availability of affordable housing for low-
income District residents, and developing an equitable
means outside of the homeless system for distributing
affordable housing opportunities.
Included in the D.C. Initiative plan is a partnership
agreement which outlines the District's commitment to produce or
contract for the following housing facilities and other services
over a two year period:
Single Adults
240 supportive housing placements for persons with
mental illness
400 substance abuse placements
50 residential placements for persons with AIDS
100 job training program opportunities
160 Single Room Occupancy units
Families
1000 permanent housing placements (includes HOME and
public housing)
100 substance abuse placements
Cumulative Total: 2,050
The District must produce or contract for required activities
during the first year to obtain the remaining funding for the D.C.
Initiative.
The D.C. Initiative is a very important effort in developing
national models to address homelessness .
The recent action by the House to approve HUD's Innovative
Housing and Homeless Fund will enable us to expand this approach in
other cities across the country.
Thank you for inviting me. I would be happy to answer any
questions you might have.
50
October 26, 1993, hearing held by the
Subcommittee on Housing and Community Development
entitled "Interagency Council on the Homeless and the
District of Columbia Homeless Initiative"
QUESTIONS FROM CHAIRMAN HENRY B. GONZALEZ TO
MS. MARSHA A. MARTIN
1. WHAT HAVE BEEN THE PREPARATIONS THUS FAR FOR THE FEDERAL PLAN
REQUIRED BY THE PRESIDENT BY EXECUTIVE ORDER?
2. WHERE IS THE DATA THAT HAS BEEN COLLECTED FROM THE "TOWN HALL
MEETINGS" THAT HAVE BEEN TAKING PLACE AROUND THE COUNTRY?
3. DOES THIS INFORMATION RELATE ONLY TO HUD OR TO OTHER AGENCIES?
4. HOW IS ANALYZING THIS INFORMATION FOR THE PLAN?
5. HAVE THERE BEEN INTERAGENCY MEETINGS AND INPUT FROM THE OTHFR
MEMBERS, BESIDES HUD, ON THE STRUCTURE OF THE FEDERAL PLAN AND
THE DATA THAT THEIR AGENCIES COULD CONTRIBUTE TO THE PLAN?
6. SINCE YOU HAVE BEEN AT THE COUNCIL, WHAT PART OF THE BUDGET
INCLUDING STAFF TIME, HAS BEEN SPENT ON THE D.C. INITIATIVE?
7. IS THE D.C. INITIATIVE AN INTERAGENCY ENDEAVOR?
8. WHAT STAFF FROM OTHER AGENCIES HAS BEEN BROUGHT IN TO WORK ON
THE D.C. INITIATIVE?
9. DID OTHER AGENCIES REVIEW THE PLAN FOR THE D.C. INITIATIVE?
51
RESPONSES FROM MARSHA A. MARTIN, EXECUTIVE DIRECTOR,
INTERAGENCY COUNCIL ON THE HOMELESS TO
QUESTIONS FROM CHAIRMAN HENRY B. GONZALEZ
1 . What have been the prepeirations thus far for the Federal
Plan required by the President by Executive Order?
In addition to preliminary discussions with representatives
of the 17 member agencies of the Council, we have sponsored
eight interactive forums to receive recommendations from
government officials, nonprofit organizations and service
agencies, and homeless people themselves. These planning
and outreach efforts will continue throughout the fall and
early winter months . Nine additional conferences are
scheduled, and the Regional Coordinators of the Interagency
Council on the Homeless will interview homeless people in
over 40 shelters and other facilities around the country.
2. Where is the data that have been collected from the "town
hall meetings" that have been taking place around the
country?
Critical issues raised by participants in the forums have
been noted and have been used to help focus the discussions
in subsequent meetings. The attached survey was
distributed during these meetings and mailed to over 12,000
additional individuals and organizations. The
recommendations from the forums and surveys will be
summarized and reflected in the Federal Plan.
3 . Does this information relate only to HDD or to other
agencies?
To date, the five top issues priority issues identified by
those attending the interactive forums and responding to the
mail questionnaires are: (1) affordable housing, (2)
addressing the needs of the working poor, (3) homelessness
prevention, (4) mental health treatment services, and (5)
substance abuse treatment services. As you will note, they
involve issues that cross a number of agencies. Of course,
the number one issue is the lack of affordable housing.
4. Who is analyzing this information for the plan?
Staff of the Interagency on the Homeless are analyzing this
information. This information will be shared with other
agencies at interagency Federal Plan Working Group meetings.
5 . Have there been interagency meetings and input from the
other members, besides HDD, on the structure of the Federal
52
Plan and the data that their agencies could contribute to
the Plan?
Yes. In July, we formed a working group comprised of
representatives of the 17 member agencies. Each agency was
charged with identifying opportunities for program
improvements and innovative approaches. This group will
continue to meet.
6. Since you have been at the Council, what part of the budget,
including staff time, has been spent on the D.C. Initiative?
In May 1993, HUD Secretary Henry Cisneros invited the
Council to participate in the development of the D.C.
Initiative. Since that time, at least one Council staff
person has worked on the Initiative full time. Two other
staff persons have been involved on a much more limited
basis. No Council resources other than staff time have been
spent on the Initiative. HUD paid for the printing of the
D.C. Initiative document.
7. Is the D.C. Initiative an interagency endeavor?
Yes. Over the summer. Council staff met with
representatives of FEMA, HUD, HHS, VA, ACTION, Justice and
other agencies to review their current programs in the
District of Columbia and to encourage their participation.
The agencies were very receptive to Secretary Cisneros'
invitation.
8. What staff from other agencies have been brought in to vrork
on the D.C. Initiative?
Staff from VA, FEMA, HUD, HHS and ACTION are actively
participating in the Initiative by serving as coordinators
of activities related to the D.C. Initiative within their
respective agencies.
9. Did other agencies review the plan for the D.C. Initiative?
All agencies in the District of Columbia that are involved
in human services and emergency assistance are involved in
the D.C. Initiative, and many reviewed the plan. Council
staff also distributed an initial outline of the plan to
representatives of the member agencies for review and
comment .
Attachment
53
'•^....'^
U.S DEPARTMENTT OF HOUSING AND URBAN DEVELOPMENT
THE SECRETARY
WASHINGTON. DC 20410-0001
November 30, 1993
Dear Friend,
President Clinton has pledged his administration to the
fight against homelessness . As part of that effort, the
President has directed an Interagency Council to craft a Federal
plan on homelessness.
An essential factor in this process is the input and advice
of those who know the problem best - those people who work with
persons who are homeless on a regular basis.
To that end, we have been consulting with elected officials,
providers and homeless persons across the country. We invite you
to be part of that process by giving us the benefit of your
experience and insight. By December 20, 1993 please complete the
enclosed questionnaire and return it to:
Federal Plan
Department of Housing and Urban Development
451 Seventh Street S.W. Suite 7274
Washington D.C. 20410
We look forward to working with you in service to the poor
and homeless in our country.
Sincerely,
Henry G./cisneros
Enclosures
54
Federal Plan Questionnaire
Name/Organization/ Address (optional).
Describe the geographical category and type of organization you represent.
Geographical Category
Large metropolitan area
Moderate to medium area
Rural area
' Other
Type nf Og^niy^^np
Service provider
Advocacy organization
City/county government
State government
Federal government
Other
Part I: Recommendations to Break the Existing Cycle
of Homelessness and Prevent Future Homelessness
(1) My recommendations for improving, streamlining and/or consolidating existing programs
designed to assist homeless individuals and/or families are as follows:
55
(2) My Tecommendations for redirecting existing funding streams in order to strengthen
linkages between housing, support, and education services are as follows:
(3) My recommendations for promoting coordination and cooperation among grantees, local
housing and support service providers, school districts and advocates for homeless
individuals are as follows:
(4) My reconmiendations for encouraging and supporting creative approaches and cost-
effective local efforts to break the cycle of existing homelessness and prevent future
homelessness, including tying current homeless assistance programs to permanent housing
assistance, local housing affordability strategies, or employment opportunities are as follows:
56
Part n: Ranking of Issues to be Addressed in the Federal Plan
In FY90 and FY91, staff of the Interagency Council on the Homeless conducted monitoring
and evaluation meetings with focus groups in 47 states. Listed below are the issues most
commonly raised during those meetings. Please review, list issues that you think should be
addressed in addition to those listed and indicate, on a scale of 1 to 5, with 1 being highest
priority and 5 being lowest priority, your preference in addressing in the Federal Plan.
Shortage of affordable housing options (accessibility, availability, suitability, problems
posed by NIMBY)
Needs of woridng poor (jobs, sufficient income, health care, child care,
transportation.
Need for adequate mental health treatment programs and more effective discharge
policies by hospitals, prisons, the military and mental institutions.
Lack of adequate, appropriate treatment/aftercare programs for persons suffering from
substance abuse, including single parents with minor children.
Concern over increasing numbers of homeless families.
Need for increased emphasis on preventing homelessness.
Lack of attention to issues related to rural homelessness, particularly transportation
needs.
Need for increased emphasis on meeting the needs of homeless <:hildren and youth,
particularly young males who cannot access traditional family shelters, adult shelters,
or foster care.
Insufficient health care services coupled with increase of seriousness of health
problems such as AIDS.
Inadequacy of State support, lack of overall anti-poverty poUcies.
Concerns over increasing homelessness among migrant workers/illegal aliens.
Need for transitional housing or supportive services for ex-offenders, parolees.
Inadequacy of services for victims of domestic violence and concern over increased
incidence of domestic violence.
Eteclining public support for homeless programs.
57
Need for affordable child care for single-parent families.
Need for prevention/early diagnosis/outreach to veterans suffering from post-traumatic
stress disorder (PTSD).
Please list and rank any additional concerns, issues you wish to see addressed:
If you have any other recommendations, please attach additional sheets.
Thank you for your participation. By December 20, 1993 please return your completed form
to:
Federal Plan
U.S. Department of Housing and Urban Development
451 7th Street, S.W. Suite 7274
Washington, D.C. 22410
If your mailing label is incorrect, please include changes or corrections with your completed
form.
58
QUESTIONS FOR
MARSHA MARTIN, Executive Director
Interagency Council on the Homeless
Submitted by Representative Roukema
1. Secretary Cisneros and Assistant Seaetary Cuomo have stated on several occasions
that addressing homelessness is HUD'S first priority. Now that the Council is a
subsection of HUD, what specific actions does HUD advocate to end homelessness?
Much thought and effort has been given to solving the homeless crisis. Yet,
families and people are still living in their cars or on the streets. Have you
developed new ideas and paradigms for addressing the needs of the homeless?
Are more training, job and education programs necessary to move homeless
families from transitional housing into a more permanent setting?
2. The D.C. Initiative is a major undertaking for the District and the Federal government
is committing a great deal of money to the program. What role does HUD intend to
play in this partnership throughout the two year demonstration with regard to providing
technical assistance, oversight, and staffing?
3. You worked with Assistant Secretary Cuomo in New York. How much of the New
York homeless plan and experience has been utilized in formulating policies and
directives for the Interagency Council and the D.C. Initiative?
Has the New York plan been successful in addressing the needs of homeless
families and individuals?
59
RESPONSES FROM MARSHA A. MARTIN, EXECUTIVE DIRECTOR OF THE
INTERAGENCY COUNCIL ON THE HOMELESS TO QUESTIONS FROM
CONGRESSWOMAN ROUKEMA
1. Secretary Cisneros and Assistant Secretary Cuomo have stated
on several occasions that addressing homelessness is HUD's
first priority. Now that the Council is a subsection of
HUD, what specific actions does HUD advocate to end
homelessness?
Much thought and effort has been given to solving the
homeless crisis. Yet, families and people are still
living in their cars or on the streets. Have you
developed new ideas and paradigms for addressing the
needs of the homeless?
Are more training, job and education programs necessary
to move homeless families from transitional housing
into a more permanent setting?
On May 19, 1993, President Clinton instructed the
Interagency Council by Executive Order to develop a Federal
Plan to address homelessness. The plan will include
specific actions for all agencies with McKinney programs,
including HUD, to reorganize, streamline and improve program
administration .
As we have traveled around the country and discussed
homelessness with government officials, nonprofit
organizations and service agencies, and homeless people, we
have heard many suggestions for assisting homeless people.
There was consensus that one solution to homelessness is
economic self-sufficiency through jobs, education and
training programs .
It is important that each community ensure that it has a
"continuum of care" which provides for a seamless system of
services for persons who are homeless or at risk of
homelessness. HUD is currently looking at ways to support
efforts by communities to support such a continuum.
2. The D.C. Initiative is a major undertaking for the District
and the Federal government is committing a great deal of
money to the program. What role does HUD intend to play in
this partnership throughout the two-year demonstration with
regard to providing technical assistance, oversight, and
staffing?
It is anticipated that HUD and the Interagency Council on
the Homeless will continue an active involvement in the D.C.
Initiative throughout the three year demonstration project.
60
You worked with Assistant Secretary Cuomo in New York. How
much of the New York homeless plan and experience has been
utilized in formulating policies and directives for the
Interagency Council and the D.C. Initiative?
Has the New York plan been successful in addressing the
needs of homeless families euid individuals?
Many cities, including New York City, are effectively
providing a range of services and programs for homeless
families and single adults who need them. Most have
concluded that more is necessary in the way of developing an
integrated system. That is what the work regarding the New
York City plan involved, and that is very much the focus of
the D.C. Initiative as well. The key to providing a
continuum of care is that housing and services be designed
to meet the particular needs of a particular city. In the
District of Columbia, for example, it was learned that there
was an abundance of emergency services and an unmet need for
permanent support and some transitional housing.
After 10-12 years of service provision and emergency shelter
care, most cities have concluded that something more must be
done to ensure continuity of care. Too many people are
still falling through the cracks.
61
TKSTIMONY
BErOKE THE HOUSING SUBCOMMITTEE
OF THE BANKING AND FINANCE COMMITTEE
OF THE
HOUSK OF REPRESENTATIVES
By Mark E. Talisman
Co-Founder, National Emergency Food and Shelter Program
October 26, 1993
73-385 - 94
62
Mr. Chairman and Members of this Subcomnittee:
It. is always a pleasure and an honor Lo appear before my friend, the
■distinguished Chairman of this Subcommittee and Full Committee, Mr.
Gon?alez. Having known you for over 20 years, I always respond when you
call and that is why I am hero today.
Otherwise, 1 cannot quite figure out why things turned out the way they
did for tlie Interagency Council on the Homeless. As you know, I served
here for a long time as a staffer with Congressman Vanlk, Including time
associated with this very committee when Mr. Vanik was a mnrober. I teach a
lot about tho legislative process, try and work within this system and
tuach cliildren and college .students to respect it. 1 gyen created forty
half hours for prime time television on the workings of the three branches
of government. Yet this situation of the disappearance of the Interagency
Council on the Homeless rrally stumps me. It Ifi a first.
As I understand it, a distinguished public servant, Marsha Martin, agroed
to head what had been a federal body which was confused about- its role in
previous administrations. Ms. Martin came to Washington from New York with
great credentials in this very area of blessed work, with the actual work
effort lo bark up her fine notiices. After a very short period of tlml^, Ms.
Martin and a newly enevgi?,ed and dedicated staff of the Interagency'
Council rewcd up this city and many parts of the Nation as they asserted
the very coordinative rolf. which had been envisioned for the Interagency
Council when it was created in thellcKinney Act.
As Secretary Cisneros began to fulfill his tough self-lmposod and laudable
mandate to bring housing to tho people, the initiatives which he
encouraged and began to eee realized starting with the significant and
creative but complicated housing initiative here in the District of
Columbia were actually being coordinated and implemented through thR_
superb assistance, .guidance and sh'car guts of Marsha Martin and her
enthusiastic staff.
In fact', I had the personal privilege (a phrase I do not use lightly, Mr.
Chairman) to participate in a briefing whlc>i Ms. Martin and her colleagues
gave for members and staff of the National Emergency Food and Shelter
Board around six weeks ago or so. It was edifying, sensitive to the fine
points and subtleties of the community jjrobloms inherent in such
Initiatives and downright blunt and honest with all questions being taken
and answered directly and frankly. It was really refreshing to hear a
complex series of issues and problems adddressed for what they were with
no ol)fuscatlon--and no hiding behind big words either.
Then, I first heard word of an attempted program assassination--thls one.
1 could not believe what 1 was hearing. The very program turn-around of
the century was deadl As I looked into It, I was assured that the House
would never let such a" thing happen since everyone was interested in
seeing that a lively but" neutral address be available to assure
implementation' of thfe . laudable goals of affordable transition and
permanent housing for those huge niimberc of people still stuck on our city
streets, in rural areas of this country and in transit betwixt and between
the two. ' . •
Then came the shocking headlines of last week which 1 know you felt
deeply, Mr. Chairman, as did many of us. I don't get it, Mr. Chairman!
63
Tt scorns to mc that vhon a program idea is finally realized in an actual
turn around as wc all have witnessed under the leadership of Marsha
Martin, each part of our government ought to back up folly these changes,
encourage a lot more progress and be delighted that the program finally
will help people who were meant to be served by the Interagency Council.
As for the D. C. Housing Initiative which has so carefully been stowardcd
by a team including Ms. Marlin and her colleagues, the District has
finally Joined the loral Emergency Pood and Shelter Board membership. A
large number of obstacles in the District are being peeled away. And,
before the crude knifing of the Interagency Council intervened so rudely,
progress was being made signficantly toward development of the first
serious calendar for real implementation of real programs.
That briefing' I mentioned a moment ago, held around six weeks ago, dwelt
at length on the densely detailed account of the progress and remaining
challenges as .«;oon from the Interagency Council's vantage point. Yet,
without complaining, but with great and voluable enthusiasm, Ms. Martin
and her associatt?.«; rocounted as if reexperience.s the greatest triumphs of
their lives, the many succes.«;Gs, some seemingly small and others clearly
grand and great, which had already been racked up as a result of the very
intense collaboration between the D. C and Interagency Council and a host
of other IkvbIs and groups.
Then the obituary was printed for the Interagency Council, right smack in
the middle of tliese great successes which Ironically come so hard on the
heels of utter failures in previous years when there was not, as you know
, well Mr. Chairman, any interest we could detect, by those other
Administrations to help our homeless kin in any meaningful ways at all. It
was broken, and the Interagency Council got fixed in record time; it was
up and running becoming finely tuned and doing great work and it got
killed and that is a shame.
Vet, 1 Viear whisper.s, Mr. Chairman, that this Administration, for whom we
can have the highest regard in connection with their basic strong feelings
to right wrongs like the national disgrace of homelessness and hunger,
wants to fix this, too. I only wish the whispers would become shouts real
soon so as not to lose one minute more in what must continue to be a
totally coordinated and highly friendly war against tliese scourges which
plague our people and country of homelessness and hunger. A great country
like ours must indeed see to it that evnry citizen has place to sleep and
that our babies do indeed go to bed at night having had their milk.
64
THE NATIONAL ALLIANCE TO END HOMELESSNESS, INC.
Testimony of
Nan Roman
Vice President of Policy and Programs
National Alliance to End Homelessness
on behalf of the
National Alliance to End Homelessness
National Coalition for the Homeless
National Law Center on Homelessness and Poverty
before the
U.S. House of Representatives
Subcommittee on Housing and Community Development
Tuesday, October 26, 1993
I am Nan Roman, Vice President of the National Alliance to End Homelessness. I want
to thank the Subcommittee for inviting me here to speak with you today. I am here representing
not only the Alliance, but also the National Coalition for the Homeless and the National Law
Center on Homelessness and Poverty. The Alliance itself has 1,750 member organizations and
together our three national organizations represent thousands of organizations around the country
which provide housing and services, and are advocates for homeless people We wish to express
our deepest gratitude to the Chairman and members of the Subcommittee for holding this hearing
to examine the need for an Interagency Council on the Homeless and the D.C. Initiative. Mr.
Chairman, in 1991, the Alliance gave you our annual award for outstanding contributions to
ending homelessness in our nation. In 1993, we gave this same award to another member of this
Subcommittee, N4r. Bruce Vento. The trust we placed in your leadership has been amply
justified, particularly in your concern for the Interagency Council on the Homeless and the D.C.
Initiative.
1518 K STREET NW SUITE 206 WASHINGTON. DC 20005 TELEPHONE (202) 638-1526 FAX (202) 638-4664
65
I will first address the matter of the Interagency Council on the Homeless.
Mr. Chairman, our organizations believe that an effective Interagency Council on the
Homeless is an essential element of any federal attempt to end homelessness. It is essential
because homelessness is a cross-cutting issue. Homeless people need to receive assistance from
many federal agencies and are affected by their policies. Among the programs which they need
to use are AFDC, Medicaid, SSI disability, job training, veterans benefits, food stamps, child
care, education, and, of course, housing assistance. The various agencies which provide this
assistance must coordinate their efforts, and, for this coordination to succeed, all must feel that
they are equal partners. This is the important function of the Interagency Council on the
Homeless. In order to fulfill this function the Council needs to have the full and demonstrated
authority of the President behind it. This is why it should not be housed in any one federal
agency, but in the White House. The Alliance, the Coalition and the Law Center have
independently recommended this course since the beginning of the Clinton Administrarion. This
is no criticism of HUD. We believe that, despite the very best intentions and an unquestioned
commitment to ending homelessness on the part of Secretary Cisneros and Assistant Secretary
Cuomo, the Council cannot function effectively at HUD -- nor could it at any federal agency.
An explanation of why the Council is needed will illustrate also why an effective Council should
be located in the White House.
The Interagency Council on the Homeless is needed for two reasons. First, we need a
centralized source of information on federal resources and policy relating to homeless people and
those who serve them. We need the Council to compile information on NOFAs, rule changes,
application deadlines and other matters relevant to organizations that assist homeless people. We
need the technical assistance of Council staff to help such organizations with applications and
program management issues. And, we need a general source of information on the nature and
issues of homelessness. The Interagency Council on the Homeless can truly be government re-
invented. It can be one-stop shopping for nonprofits, state and local governments, federal
agencies and all of those who deal with homelessness. This important function requires a
Council staff with adequate resources and a thorough knowledge of, and familiarity with, all of
the relevant federal agencies.
Even more importantly, the Council has a critical policy role. It needs to coordinate and
monitor all federal policy and programs relevant to homelessness. It needs to be pro-active in
identifying needs, gaps, etc. and proposing solutions to problems. It needs to be a leader in
developing a federal plan of action that will end the tragedy of homelessness. It needs to have
the demonstrated support of the President so that it can gamer the resources and cooperation of
all its member agencies to implement such a plan. These functions were laid out in great detail
in the statute authorizing the Council. They cannot be accomplished by a Council located at any
one agency. It is our belief that the Council's failure to adequately address policy matters is due
in large part to the fact that has not had behind it the full weight of Presidential leadership. To
achieve such leadership, the Council should be an independent agency located in the White
House.
66
What could an independent Interagency Council do?
• It could develop and implement a federal plan as was envisioned by the President
in his May 21, 1993 Executive Order. The Council has never made progress
toward a coordinated planning effort among all the agencies with the goal of
ending homelessness. Furthermore, an independent agency would have behind it
the authority of the President in its effon to implement such a plan.
• It could work with all federal agencies to ensure that their assistance to homeless
people was effective. This could be accomplished both by monitoring existing
federal programs and by working with the federal agencies to ensure coordinated
planning and implementation of programs among agencies.
• An effective Interagency Council could provide information and technical
assistance on the full range of federal programs to help the homeless.
In addition, it could do the following.
• An independent agency could provide guidance on how to evaluate the
effectiveness of various programs.
• An independent agency could identify and fill information needs of the
participating agencies. Congress and providers, and it could use the full weight of
the President's leadership to accumulate the resources necessary to meet these
needs.
• An independent Council could work with local and state governments and
providers to see where the problems lie in coordinating assistance, communicate
these coordination problems to the relevant federal agencies, and develop
solutions.
• An independent Interagency Council could also provide leadership and technical
assistance to localities on coordinating their delivery of assistance. Such
coordination is desperately needed at Uie local level.
The federal response to homelessness requires more, not less, coordination and the
necessity for coordination can only grow. We need an Interagency Council on the Homeless.
Our organizations suggest that it be placed at the White House. We believe tiiat this can be done
with no statutory change. Because there is no appropriation for FY 1994, we request the
Chairman's and the Subcommittee's assistance in encouraging each of the participating federal
agencies to contribute funds to maintain Council operations. We propose that each of the seven
principal agencies (HUD, HHS, Labor, Education, Veterans Affairs, Agriculture, and FEMA)
contribute $50,000 and donate the services of one staff person to the effort. Each of the
67
remaining ten member agencies would contribute $10,000. As is required under the statute, HUD
could provide administrative support in the form of two to three support staff. This would yield
a budget of $450,000 to pay the Executive Director and administrative, travel, printing and other
costs, as well as a total staff of ten. Under this plan, there would be an aggregate federal staff
reduction, with only one additional White House staff position; that of the Council's Executive
Director. HUD would retain the Chairmanship of the Council, but in next year's authorizadon
we would seek a rotating Chairmanship among the seven principal agencies.
The Alliance, the Coalition and the Law Center and their members and affiliates will
continue to fight for an Interagency Council on the Homeless. It is our belief that such a Council
is necessary to develop and implement a federal plan to end homelessness; to monitor and
coordinate federal assistance to the homeless; and to provide information and technical assistance
on federal programs and on the issue in general. Knowing of HUD's stated commitment to
interagency cooperation, and its concern about the current Council's effectiveness, we hope that
it will join us. And, Mr. Chairman and members of the Subcommittee, we hope that you will
also support our efforts.
I will now briefly address the D.C. Initiative. Our organizations are concerned about the
Initiative insofar as it, and other jurisdictions funded by the Innovative Homeless Initiatives
Demonstration Program, are intended to be models for other cities. In this context, we have
several thoughts, which we have also shared with HUD.
First, the purpose of the federal funding is somewhat unclear to us. Is it meant to fill
service and housing gaps, or is it meant to be spent on building the coordination infrastructure?
Certainly, both of these are critical needs and deserve suppon, although of widely varying
magnitudes. However, if the principal function is filling gaps, $20 million over two years is
unlikely to be adequate to complete a comprehensive "continuum of care." In addition, we must
look at the continuation of funding beyond the two year term envisioned. If the purpose is to
encourage coordination, more attention should be paid to the process by which coordination is
accomplished and evaluated, and what the outcome is, relative to the cost. It seems that the goal
is some combination of these, but in order to evaluate the results of the models generated by this
program the purpose of federal funding should be made clear.
Second, there must be formal mechanisms for ensuring the genuine participation of all
relevant parties in the planning and coordination efforts of any jurisdiction participating in the
program. In particular, there must be outreach to community-based organizations and homeless
people to ensure their formal involvement throughout the planning process. Without real
participation in planning and coordination by all partners, no initiative can hope to succeed.
And, finally, there must be the assurance of a maintenance of effort by local jurisdictions
receiving federal funding from the Innovative Homeless Initiatives Demonstration Program.
Jurisdictions should not use the new infusion of federal funds to replace funding for existing
housing, service or other programs.
68
In summary, the National Coalition for the Homeless, the National Law Center on
Homelessness and Poverty and the National Alliance to End Homelessness will continue to work
for an effective, independent Interagency Council on the Homeless. We ask for your support to
continue, in a meaningful way, the work of the Council during the coming year and we look
forward to working with you to reauthorize it next year. In addition, we will continue to watch
the D.C. Initiative for its benefits as a national model. We would be happy to work with you
and HUD in the implementation of this new program.
Mr. Chairman and members of the Subcommittee, on behalf of the Law Center, the
Coalition and the Alliance, I thank you for your leadership on this issue and for inviting us to
testify before you today.
69
QUESTION FOR
NAN ROMAN, Vice President, Policy and Programs,
Narional Alliance to End Homelessness, also on behalf of
the National Coalition for the Homeless and the
National Law Center on Homelessness and Poverty
Submitted by Representative Roukema
Much thought and effort has been given to solving the homeless crisis, including the
D.C. Initiative. Do you have any suggestions or new paradigms for for solutions which
should be included to make the Initiative successful?
70
THE NAIIONAL ALLIANCE TO END HOMELESSNESS, INC.
January 21, 1994
TO:
FROM:
SUBJECT:
Representative Marge Roukema
Nan Roman
Vice President
National Alliance to End Homelessness
Response to Question Submitted in Reference to Testimony Before the
Subcommittee on Housing and Community Development on October 26, 1993
The plan for the D.C. Initiative, on the whole, adequately assesses the problem of
homelessness in the District. It correctly places greater emphasis than we now have on outreach
(that IS, on bnngmg people into the assistance system), and on permanent housing. Although it
does a good job of assessing the problem, it cannot provide adequate resources to solve it. It is
our presumption that "the entity" envisioned in the Initiative will be responsible both for raising
additional resources and for distributing scarce resources by setting priorities.
Ms. Roukema, the solution to homelessness is no mystery. People are homeless because
they do not have homes. Their first need, then, is for permanent housing. In order to help them
lead stable lives in such housing, they may also require assistance to increase their incomes and
some on-going social service assistance. Their second need, then, is to be fit into a system of
assistance.
The first step in delivering housing and service assistance is outreach. Virtually by
definition, homeless people have not had successful experiences with the assistance system (if
they had, presumably they would not be homeless). Many are wary of this system and unwilling
to become involved with it because they do not perceive its benefits. Additionally, a significant
percentage of homeless people have substance abuse illness, mental iUness or other diseases.
Often, these diseases have been exacerbated by their homelessness -- or even caused by it. As
with domiciled people who suffer from such illnesses, successful treatment generally requires
1518 K STREET NW SUrrE206 WASHINGTON, DC 20005 TELEPHONE (202) 638-1526 FAX (202) 638-4664
71
some complicity on the part of the person who is ill. It may take extensive outreach efforts to
engage such people in the services system.
Once people are engaged in the system, their needs can be assessed -"d^^e effort can
begin to meet them. While many homeless people do have service and income needs, it is our
befief haTservices and income support can, in most cases, best be delivered to people who have
r.^ennanlm place to live. This has the added advantage of hooking them into the mainstream
er^e prn^arn that can assist them long tenn. In this way we avoid creating a parallel system
of home esf services and housing, which is not only expensive but which cannot provid
ass'tance after someone moves into pennanent housing. Although some people need transitional
housing, it is our belief that this number is small.
The kev of course, is making sure that there is an adequate supply of housing services
and income programs To accomplish this there must be coordination within the pubic sector,
Tnd ewTen theTubl c and the pnvate, nonprofit sector. There are numerous models of t is type
of coordination such as UNITY in New Orleans and the Homeless Services Network in St^
fouTsWe need more models, however, and more encouragement for localities to engage in such
^oo"in!^^on Coordination mechanisms must be able to identify gaps ,n assistance and determine
how they are to be filled. Where there are not adequate resources to meet the needs, they must
set priorities.
Funds available in the Innovative Homeless Demonstration Program are not adequate to
fill the gaps in the network of housing, services and income available to homeless people They
a^ adequae however, to help and encourage cities to assess the local homelessness situation
ancudTng needs for outreach, housing, services and income assistance); to assess the resources
'::^^l.\Z.. the needs; to identify the gaps ; to set priorities; and - coordm.e^^^^^^^^^^^^^
of assistance While no one model is good for every locality, the need for such efforts is
uniSand with suitable goals and objectives, the funding could well be put to this use.
72
STATEMENT OF
VINCENT C. GRAY, DIRECTOR
DISTRICT OF COLUMBIA DEPARTMENT OF HUMAN SERVICES
BEFORE
THE SUBCOMMITTEE ON HOUSING AND COMMUNITY DEVELOPMENT
OF
THE COMMITTEE ON BANKING, FINANCE AND URBAN AFFAIRS
U.S. HOUSE OF REPRESENTATIVES
HEARING ON
THE INTERAGENCY COUNCIL ON THE HOMELESS
AND
THE D.C. INITIATIVE
OCTOBER 26, 1993
73
GOOD MORNING CHAIRMAN GONZALEZ AND MEMBERS OF THE SUBCOMMITTEE ON
HOUSING AND COMMUNITY DEVELOPMENT, COMMITTEE ON BANKING, FINANCE
AND URBAN AFFAIRS. I AM VINCENT C. GRAY, DIRECTOR OF THE DISTRICT
OF COLUMBIA DEPARTMENT OF HUMAN SERVICES AND CHAIRPERSON OF THE
DISTRICT OF COLUMBIA ("DISTRICT") INTER-AGENCY HOMELESS
COORDINATING COUNCIL. I AM PLEASED TO BE HERE TODAY TO TESTIFY ON
BEHALF OF MAYOR KELLY AND THE DISTRICT GOVERNMENT WITH RESPECT TO
THE INTERAGENCY COUNCIL ON THE HOMELESS AND THE D.C. INITIATIVE.
JOINING ME ARE ENID SIMMONS, DIRECTOR OF THE OFFICE OF PLANNING AND
EVALUATION, EXECUTIVE OFFICE OF THE MAYOR; MILTON BAILEY, DEPUTY
DIRECTOR, DEPARTMENT OF HOUSING AND COMMUNITY DEVELOPMENT; CLAUDIA
BOOKER, REPRESENTING THE DIRECTOR OF THE DEPARTMENT OF PUBLIC AND
ASSISTED HOUSING; JAMES BUTTS, ADMINISTRATOR, INCOME MAINTENANCE
ADMINISTRATION, DEPARTMENT HUMAN SERVICES; DR. ROBERT KEISLING,
ADMINISTRATOR, ADULT SERVICES ADMINISTRATION, DEPARTMENT OF HUMAN
SERVICES; AND HELEN KEYS, CHIEF, OFFICE OF EMERGENCY SHELTER AND
SUPPORT SERVICES, DEPARTMENT OF HUMAN SERVICES.
THE INTERAGENCY COUNCIL HAS BEEN A VALUABLE CLEARINGHOUSE FOR
INFORMATION ON HOMELESS INITIATIVES IMPLEMENTED BY LOCAL
GOVERNMENTS AND HAS BEEN INSTRUMENTAL TO OUR EFFORTS TO FORMALIZE
THE D.C. INITIATIVE BY FACILITATING OUR ACCESS TO KEY FEDERAL
GOVERNMENT AGENCIES. THE PARTNERSHIP BETWEEN THE GOVERNMENT OF THE
DISTRICT OF COLUMBIA AND THE U.S. DEPARTMENT OF HOUSING AND URBAN
DEVELOPMENT ("HUD"), KNOWN AS THE D.C. INITIATIVE, IS A PROMISING,
AMBITIOUS, INNOVATIVE INTERDISCIPLINARY, APPROACH TO ENDING
HOMELESSNESS THAT WE HOPE WILL BE A MODEL FOR LOCAL GOVERNMENTS
NATIONWIDE.
THE DISTRICT OF COLUMBIA, LIKE OTHER MAJOR URBAN AREAS ACROSS THE
NATION, HAS EXPERIENCED AN ALARMING INCREASE IN THE NUMBER OF
HOMELESS PERSONS AMONG ITS CITIZENS OVER THE PAST DECADE.
73-385 - 95 - 4
74
IN 1975, THE DISTRICT GOVERNMENT MAINTAINED TWO SMALL
EMERGENCY FACILITIES WITH ABOUT 100 UNITS AND AN
ADDITIONAL 200 SINGLE MEN AND WOMEN WERE SERVED THROUGH
PRIVATE FACILITIES. THE DISTRICT GOVERNMENT WOULD
CONTRACT WITH PRIVATE PROVIDERS IF MORE SHELTER CAPACITY
WAS NEEDED. CHARITABLE ORGANIZATIONS FED APPROXIMATELY
400 PERSONS DAILY. VIRTUALLY NO ONE LIVED ON THE
STREETS.
O BY 1981, IT BECAME NECESSARY TO EXPAND THE DISTRICT
GOVERNMENT'S SHELTER CAPACITY TO ACCOMMODATE 600 MEN,
WOMEN AND CHILDREN AND THE NUMBER OF DISTRICT GOVERNMENT
OPERATED FACILITIES GREW FROM TWO TO FOUR. AN ADDITIONAL
200 FAMILIES WERE PROVIDED VOUCHERS FOR SHELTER AT HOTELS
AND MOTELS.
O IN 1989, THE DISTRICT GOVERNMENT SHELTERED MORE THAT
11,018 SINGLE ADULTS AND 2400 FAMILIES AT A COST OF $40
MILLION ANNUALLY AND THE NUMBER OF HOMELESS PERSONS
"LIVING" ON THE STREETS HAD INCREASED DRAMATICALLY.
THE INCREASE IN THE NUMBER OF HOMELESS PERSONS IS IN LARGE PART THE
PRODUCT OF TWO PHENOMENA OF THE 1980s: 1) A SIGNIFICANT INCREASE IN
POVERTY AND SOCIAL ILLS COUPLED WITH A SEVERE REDUCTION IN FEDERAL
FUNDING FOR SOCIAL SERVICE PROGRAMS TO ASSIST THE POOR AND 2) A
DRASTIC DECREASE IN FEDERAL FUNDING FOR HOUSING PROGRAMS FOR LOW
INCOME PERSONS. THE INCREASE IN POVERTY AND DECREASE IN HOUSING
PROGRAMS, EXACERBATED BY THE RECESSIONARY ECONOMY THAT HAS
CHARACTERIZED THE 1990s, PROVED TO BE A RECIPE FOR HOMELESSNESS IN
EPIDEMIC PROPORTIONS.
THE NATIONAL COALITION FOR THE HOMELESS ESTIMATES THAT THERE ARE
75
APPROXIMATELY 3 MILLION HOMELESS PERSONS IN THE UNITED STATES; A
FIGURE THAT, WHILE LARGE, REPRESENTS, AT BEST, A GOOD FAITH EFFORT
TO ACCOUNT FOR A POPULATION THAT DOES NOT USUALLY MAKE ITSELF
AVAILABLE TO CENSUS TAKERS. OVER THE PAST FIVE YEARS THE DISTRICT
GOVERNMENT HAS SPENT APPROXIMATELY $100 MILLION IN LOCAL AND
FEDERAL FUNDS IN ITS EFFORT TO MEET THE NEEDS OF HOMELESS PERSONS
IN THE DISTRICT OF COLUMBIA ALONE. LOCAL CHARITABLE ORGANIZATIONS
HAVE SPENT ADDITIONAL MILLIONS.
DESPITE THE TREMENDOUS COMMITMENT OF PUBLIC AND PRIVATE DOLLARS,
HOMELESSNESS REMAINS ONE OF THE MOST PERSISTENT AND COMPLEX
CHALLENGES THAT THE DISTRICT GOVERNMENT FACES. THOUSANDS OF
DISTRICT GOVERNMENT PERSON-HOURS HAVE BEEN DEVOTED TO EVALUATING
PAST EFFORTS, AND FASHIONING AND IMPLEMENTING NEW INITIATIVES TO
MEET THE CHALLENGE. OUR ANALYSIS HAS LED US TO CONCLUDE THAT
HOMELESSNESS DOES NOT LEND ITSELF TO ONE DIMENSIONAL SOLUTIONS LIKE
PROVIDING SHELTER SERVICES ALONE. INSTEAD, THE ERADICATION OF
HOMELESSNESS DEPENDS UPON THE ESTABLISHMENT OF A SUPPORTIVE,
COMMUNITY NETWORK, AS ENVISIONED BY THE D.C. INITIATIVE, THAT HELPS
HOMELESS PERSONS ADDRESS THE EMOTIONAL, INTELLECTUAL, HEALTH,
EMPLOYMENT, EDUCATIONAL, SOCIAL AND ECONOMIC DYNAMICS THAT ARE THE
CAUSES OF HOMELESSNESS.
THE PROFILE OF THE DISTRICT'S HOMELESS POPULATION SUPPORTS OUR
CONCLUSION. OUR HOMELESS POPULATION CONSISTS OF FIVE PRIMARY
SUBPOPULATIONS: 1) SINGLE ADULTS WITH SPECIAL NEEDS; 2) SINGLE
ADULTS WITH SHORT-TERM NEEDS; 3) FAMILIES WITH SPECIAL NEEDS; 4)
FAMILIES WITH SHORT-TERM EMERGENCIES; AND 5) MARGINALLY HOUSED
FAMILIES.
1) AN ESTIMATED 3400 SINGLE ADULTS WITH SPECIAL NEEDS
CONSTITUTE APPROXIMATELY 60 PERCENT OF ALL PERSONS USING
THE DISTRICT GOVERNMENT SHELTER SYSTEM. THIS POPULATION
REQUIRES INTENSIVE ASSISTANCE FOR MENTAL ILLNESS,
CHEMICAL ADDICTION AND HIV/TB INFECTION; INCLUDES MOST OF
f
76
THE APPROXIMATELY 1200 TO 1500 INDIVIDUALS WHO LIVE ON
THE DISTRICT'S STREETS; AND APPEARS TO USE SHELTER OR
PUBLIC SPACE INTERMITTENTLY AND INTERCHANGEABLY.
2) SINGLE ADULTS WITH SHORT TERM NEEDS INCLUDE INDIVIDUALS
WHO ARE TEMPORARILY HOMELESS DUE TO FIRES, BUILDING
CONDEMNATIONS, COLD WEATHER EMERGENCIES, THREATENED
EVICTION OR NON-PAYMENT OF RENT. PERSONS IN THIS GROUP
DO NOT REQUIRE THE INTENSIVE SPECIAL SERVICES ASSOCIATED
WITH MENTAL ILLNESS, CHEMICAL ADDICTION OR MAJOR MEDICAL
DISABILITIES AND SOME ARE EMPLOYED.
3) HOMELESS FAMILIES WITH SPECIAL NEEDS CONSTITUTE
APPROXIMATELY 20 PERCENT OF EXISTING SHELTER RESIDENTS.
THESE FAMILIES USE THE EMERGENCY SHELTER SYSTEM
REPEATEDLY AND HAVE LIVED IN PRECARIOUS AND UNSTABLE
HOUSING SITUATIONS. THE ADULT MEMBERS OF THE FAMILIES
OFTEN SUFFER FROM CHEMICAL ADDICTION AND MAJOR MEDICAL
ILLNESSES, AND DOMESTIC VIOLENCE IS PREVALENT.
4) WE ESTIMATE THAT FAMILIES WITH SHORT-TERM EMERGENCIES
REPRESENT A SIGNIFICANT PERCENTAGE OF THE FAMILIES IN THE
DISTRICT'S SHELTER SYSTEM. LIKE THE SINGLE ADULTS WITH
SHORT-TERM EMERGENCIES, THESE FAMILIES ARE TEMPORARILY
DISPLACED FROM THEIR HOMES DUE TO FIRES, COLD WEATHER
EMERGENCIES, EVICTIONS, AND BUILDING CONDEMNATIONS.
PROBLEMS ASSOCIATED WITH MENTAL ILLNESS, SUBSTANCE ABUSE
AND HIV INFECTION ARE NOT PREVALENT AMONG THIS GROUP AND
ARE NOT THE CAUSE OF THEIR HOMELESSNESS .
5) MARGINALLY HOUSED FAMILIES LIVE IN DOUBLED UP
ARRANGEMENTS OR DILAPIDATED HOUSING, OR ARE ON THE VERGE
OF EVICTION. THIS GROUP INCLUDES TEEN-AGED PARENTS AND
FAMILIES THAT HAVE BEEN DEPENDENT ON WELFARE BENEFITS FOR
LONG PERIODS OF TIME. MARGINALLY HOUSED FAMILIES USE
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5
SHELTERS AS ONE OF A SERIES OF MAKESHIFT LIVING
ARRANGEMENTS .
WE HAVE ALREADY BEGUN TO CHANGE OUR SERVICE DELIVERY SYSTEM IN
RESPONSE TO THE PROFILE OF HOMELESS PERSONS AND THEIR NEEDS:
O WE HAVE ELIMINATED THE USE OF HOTELS AND MOTELS TO
PROVIDE SHELTER TO FAMILIES, EXCEPT FOR 50 ROOMS WHICH
FORM THE BEGINNING OF AN ASSESSMENT APPROACH FOR FAMILIES
ENTERING THE SYSTEM FOR THE FIRST TIME. NINETY PERCENT
OF OUR FAMILIES NOW ARE SERVED IN APARTMENT UNITS. THE
ELIMINATION OF THE USE OF HOTELS AND MOTELS HAS IMPROVED
SERVICE PRACTICE AND ALSO IS COST EFFECTIVE.
o WE HAVE IMPROVED ACCESS TO BENEFITS FOR FAMILIES IN NEED
OF AFDC, MEDICAID, AND FOOD STAMP SERVICES.
O THROUGH A CONTRACTUAL ARRANGEMENT, WE HAVE DEVELOPED
EXPANDED CASE MANAGEMENT SERVICES FOR FAMILIES. OUR
CONTRACT WITH LUTHERAN SOCIAL SERVICES PROVIDES CASE
MANAGEMENT AND OTHER SOCIAL SERVICE SUPPORTS TO 300
FAMILIES IN THE SHELTER SYSTEM AND WE CONTINUE TO PROVIDE
SUPPORT AFTER THE FAMILIES ARE PLACED INTO TRANSITIONAL
OR PERMANENT HOUSING.
O THE PHYSICAL CONDITIONS IN SHELTERS FOR SINGLES HAVE BEEN
RENOVATED AND IMPROVED. WE ARE PURCHASING TRAILERS,
WHICH AT SEVERAL SITES PROVIDE SEVERAL HUNDRED BEDS
NIGHTLY FOR HOMELESS SINGLES. UNTIL RECENTLY, THE
TRAILERS WERE LEASED.
O BEGINNING NOVEMBER 1, 1993, HYPOTHERMIA SERVICES WILL BE
CONTRACTED OUT AND EXPANDED. THIS NEW, COMPREHENSIVE
OUTREACH EFFORT WILL INCLUDE A HOTLINE AND VANS FOR
PICKUP ON NIGHTS WHEN THE TEMPERATURE DIPS BELOW 32
78
DEGREES. LAMINATED CARDS WILL BE DISTRIBUTED WITH
INFORMATION ON AVAILABLE SHELTERS AND POSTERS INCLUDING
SIMILAR INFORMATION WILL BE CIRCULATED.
O THE DISTRICT GOVERNMENT HAS BEGUN TO DEVELOP CAPACITY TO
SERVE THE HARD-TO-REACH POPULATION OF "STREET PEOPLE"
WITH MENTAL HEALTH PROBLEMS. THROUGH TWO PRIVATE
PROVIDERS, ANCHOR MENTAL HEALTH AND JMC ASSOCIATES, THE
DISTRICT GOVERIWENT HAS CONTRACTED FOR OUTREACH CASE
MANAGEMENT AND 200 UNITS OF HOUSING.
DESPITE IMPROVEMENTS IN OUR SYSTEM, IT IS CLEAR THAT THE DISTRICT
GOVERNMENT, LIKE VIRTUALLY EVERY LOCAL AND STATE GOVERNMENT IN THIS
NATION WHERE HOMELESSNESS PERSISTS, HAS CONTINUED TO OPERATE
ESSENTIALLY AN EMERGENCY SHELTER PROGRAM WHILE A MORE EXTENSIVE
"CONTINUUM OF CARE" IS REQUIRED TO ADDRESS EFFECTIVELY THE PROBLEM
OF HOMELESSNESS. HOWEVER, NO LOCAL OR STATE GOVERNMENT CAN TACKLE
ALONE THE COMPLEX, SEEMINGLY INTRACTABLE PROBLEMS ASSOCIATED WITH
HOMELESSNESS. FEDERAL SUPPORT IS ESSENTIAL IF WE ARE TO CREATE
ENDURING SOLUTIONS. WE ARE PLEASED THAT THE CLINTON ADMINISTRATION
HAS ACKNOWLEDGED THE NEED FOR FEDERAL SUPPORT.
SOON AFTER THE CLINTON ADMINISTRATION ASSUMED THE REINS OF
LEADERSHIP, MAYOR SHARON PRATT KELLY AND SECRETARY HENRY CISNEROS,
U.S. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT, BEGAN TO DISCUSS
THE POTENTIAL FOR A FEDERAL/DISTRICT PARTNERSHIP TO CREATE A MODEL
SERVICE DELIVERY SYSTEM TO ADDRESS THE VARIED NEEDS OF PEOPLE WHO
ARE HOMELESS IN THE DISTRICT. AFTER NUMEROUS DISCUSSIONS AND
SEVERAL VISITS TO DISTRICT SHELTERS AND LATE EVENING TOURS OF
DISTRICT STREETS BY SECRETARY CISNEROS, MAYOR KELLY AND SECRETARY
CISNEROS ANNOUNCED ON JUNE 10, 1993, THEIR INTENTION TO DEVELOP A
MARKEDLY DIFFERENT APPROACH TO HOMELESSNESS IN THE DISTRICT; AN
APPROACH THAT HOPEFULLY WILL SERVE AS A NATIONAL MODEL FOR OTHER
CITIES TO EMULATE.
79
IN THE MONTHS THAT FOLLOWED, AN UNPRECEDENTED PLANNING EFFORT,
INVOLVING SEVERAL HUNDRED PEOPLE, UNFOLDED TO DEVELOP A BLUEPRINT
FOR THE D.C. INITIATIVE. THAT PLANNING EFFORT INVOLVED A
PARTNERSHIP CONSISTING OF THE FOLLOWING "SEVEN CORNERS":
O NOT-FOR-PROFIT HOUSING DEVELOPERS, SERVICE PROVIDERS AND
ADVOCACY ORGANIZATIONS;
O PRIVATE FOUNDATIONS;
O LOCAL BUSINESSES AND THE INVESTMENT BANKING COMMUNITY;
O NEIGHBORHOOD GROUPS;
O THE DISTRICT GOVERNMENT;
O THE FEDERAL GOVERNMENT; AND
O PEOPLE WHO ARE HOMELESS.
COOPERATION BETWEEN THE FEDERAL AND DISTRICT GOVERNMENTS THROUGHOUT
THE DEVELOPMENT OF THIS PLAN HAS BEEN CONTINUOUS AND ESSENTIAL TO
THE PROGRESS ACHIEVED TO DATE. THERE VIRTUALLY WAS NOT A DAY OVER
THE PAST FIVE MONTHS WITHOUT A MEETING OR OTHER COMMUNICATION
BETWEEN DISTRICT AND FEDERAL OFFICIALS RELATIVE TO THE DEVELOPMENT
OF THE INITIATIVE. IN ADDITION TO THE LEADERSHIP PROVIDED BY HUD,
STAFF MEMBERS OF THE FEDERAL INTERAGENCY COUNCIL ON THE HOMELESS
ALSO WERE PARTICULARLY INSTRUMENTAL IN BRINGING THE PLAN FOR THE
D.C. INITIATIVE TO FRUITION. AMONG THE NUMEROUS AREAS OF
ASSISTANCE PROVIDED, STAFF MEMBERS ESPECIALLY WERE HELPFUL AS
CATALYSTS FOR ACCESS TO KEY AGENCIES, SUCH AS THE DEPARTMENT OF
VETERANS AFFAIRS, THE FEDERAL EMERGENCY MANAGEMENT ADMINISTRATION,
ACTION/VISTA AND THE DEPARTMENT OF HEALTH AND HUMAN SERVICES.
ON SEPTEMBER 15, 199 3, THE DEPARTMENT OF HOUSING AND URBAN
DEVELOPMENT (HUD) AND THE DISTRICT ANNOUNCED COMPLETION OF THE D.C.
INITIATIVE PLAN ENTITLED "WORKING TOGETHER TO SOLVE HOMELESSNESS" .
HUD HAS COMMITTED TO PROVIDE $20 MILLION OVER THE NEXT 3-YEARS
TOWARD IMPLEMENTATION OF THE PLAN. SEVEN MILLION WILL BE PROVIDED
IN THE FIRST YEAR, $7 MILLION IN THE SECOND YEAR AND $6 MILLION IN
THE THIRD YEAR. AN ESSENTIAL TENET OF THE PLAN IS THAT
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8
HOMELESSNESS CAN BE SOLVED ONLY BY CREATING AND IMPLEMENTING A
"CONTINUUM OF CARE" THAT ADDRESSES THE ROOT CONDITIONS UNDERLYING
HOMELESSNESS. PRINCIPAL ELEMENTS OF THE PLAN INCLUDE:
o REPLACING THE CURRENT SYSTEM OF "SHELTERS" WITH A SYSTEM
THAT DISTINGUISHES BETWEEN THE DIFFERENT SUBPOPULATIONS
OF HOMELESS FAMILIES AND INDIVIDUALS, AND EMPLOYING A
CONTINUUM OF CARE MODEL THAT CONSISTS OF (1)
COMPREHENSIVE OUTREACH AND ASSESSMENT, (2) TRANSITIONAL
REHABILITATIVE SERVICES, AND (3) SUPPORTIVE PERMANENT
HOUSING DESIGNED AROUND THE SPECIFIC, INDIVIDUAL NEEDS OF
HOMELESS FAMILIES AND INDIVIDUALS. THE SYSTEM INCLUDES
STRENGTHENING EFFORTS TO PREVENT HOMELESSNESS.
o STREAMLINING EXISTING GOVERNMENT EFFORTS AND ESTABLISHING
A NEW PUBLIC/PRIVATE ENTITY TO COORDINATE AND FINANCE THE
IMPLEMENTATION OF THE NEW HOMELESS ASSISTANCE SYSTEM.
o A SOCIAL CONTRACT PURSUANT TO WHICH THE GOVERNMENT
PROVIDES SERVICES TO HOMELESS PERSONS IN NEED, AND THE
INDIVIDUAL AND FAMILY PARTICIPATES IN AN EFFORT TO GAIN
INDEPENDENT LIVING SKILLS AND AVAIL THEMSELVES OF
SERVICES AND HOUSING OFFERED TO THEM.
O ENDING THE USE OF PUBLIC SPACE BY HOMELESS PERSONS AS
RESIDENCES OF LAST RESORT THROUGH A SENSITIVE PROGRAM OF
OUTREACH AND CARE.
O INCREASING THE AVAILABILITY OF AFFORDABLE HOUSING FOR
LOW-INCOME DISTRICT RESIDENTS AND DEVELOPING AN EQUITABLE
AND EFFECTIVE MEANS, OUTSIDE OF THE HOMELESS SYSTEM, FOR
DISTRIBUTING AFFORDABLE HOUSING OPPORTUNITIES.
RESPONSIBILITY FOR IMPLEMENTATION AND COORDINATION OF THE PLAN HAS
BEEN DELEGATED TO THE DISTRICT'S INTER-AGENCY COUNCIL ON
81
HOMELESSNESS FOR WHICH I, AS DIRECTOR OF HUMAN SERVICES, SERVE AS
CHAIRPERSON. OUR INTER-AGENCY COUNCIL INCLUDES ALL AGENCIES THAT
DIRECTLY OR INDIRECTLY PROVIDE SERVICES TO PEOPLE WHO ARE HOMELESS
INCLUDING THE:
O DEPARTMENT OF HUMAN SERVICES;
o DEPARTMENT OF PUBLIC AND ASSISTED HOUSING;
o DEPARTMENT OF HOUSING AND COMMUNITY DEVELOPMENT;
O DEPARTMENT OF EMPLOYMENT SERVICES;
O DEPARTMENT OF PUBLIC WORKS; " . ■
o OFFICE OF AGING; . y',
o CHIEF FINANCIAL OFFICER;
o OFFICE OF THE CITY ADMINISTRATOR;
o MAYOR'S OFFICE OF POLICY AND EVALUATION;
o D.C. PUBLIC SCHOOLS; AND •'
o CORPORATION COUNSEL
THESE KEY DISTRICT AGENCIES HAVE BEEN JOINED BY REPRESENTATIVES OF
THE FEDERAL INTERAGENCY COUNCIL ON HOMELESSNESS AND OFFICIALS OF
HUD AND ITS WASHINGTON, D.C. FIELD OFFICE, WHOSE ASSISTANCE TO THE
DISTRICT GOVERNMENT ON THIS AND ENUMERABLE OTHER HOMELESS AND
HOUSING ISSUES HAS BEEN INVALUABLE.
TO ENSURE NO LOSS IN MOMENTUM, OUR INTERAGENCY COUNCIL MEETS BI-
WEEKLY AND HAS BEEN ORGANIZED INTO EIGHT TASK FORCES REFLECTIVE OF
THE FOLLOWING ESSENTIAL ELEMENTS OF THE PLAN:
O INTAKE/ASSESSMENT;
o OUTREACH;
o HOUSING;
o PREVENTION; _ -, ,-:.;,-
o EMPLOYMENT AND TRAINING;
o THE ENTITY;
o FINANCING; AND
o COMMUNICATIONS.
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EACH TASK FORCE HAS DEVELOPED AN IMPLEMENTATION PLAN AND TIMETABLE
FOR ITS AREA OF RESPONSIBILITY AND, EVEN THOUGH THE REFORM
ENVISIONED WILL UNFOLD OVER A PERIOD OF 2-3 YEARS, THE FOLLOWING
ELEMENTS WILL BE OPERATIONAL IN THE NEXT THREE MONTHS:
O EXPANDED HYPOTHERMIA OUTREACH RESPONSE;
o TWO DROP-IN CENTERS;
o THE CONVERSION OF A PORTION OF THE BLAIR SHELTER TO
TRANSITIONAL BEDS;
o IMPLEMENTATION OF A PILOT EMPLOYMENT AND TRAINING
PROJECT; AND
O THE DEVELOPMENT OF A 50-BED FACILITY FOR HOMELESS SINGLES
WITH SUBSTANCE ABUSE PROBLEMS.
THE PLAN WILL BE FINANCED FROM MULTIPLE SOURCES, INCLUDING THE
REDEPLOYMENT OF DISTRICT RESOURCES, PRIVATE SECTOR COMMITMENTS AND
FUNDING FROM HUD. THE DISTRICT GOVERNMENT, HUD, AND THE FEDERAL
INTERAGENCY COUNCIL ARE EVALUATING THE FEASIBILITY OF USING A
PORTION OF THE $20 MILLION IN HUD FUNDING TO LEVERAGE PRIVATE
CAPITAL TO FINANCE LOW-COST CONSTRUCTION OF HOUSING UNITS AND
SOCIAL SERVICE DELIVERY SYSTEMS. HUD HAS REQUIRED THE
ESTABLISHMENT OF THE ENTITY AS A CONDITION TO PROVIDING FUNDING.
THE GREATEST PORTION OF THE TASK OF OUR INTERAGENCY COUNCIL IS
STILL AHEAD OF US. WE MUST:
O DETERMINE THE NATURE AND SCOPE OF APPROVAL REQUIRED BY THE
COUNCIL OF THE DISTRICT OF COLUMBIA TO IMPLEMENT THE
INITIATIVE;
O DEFINE THE TYPES AND RANGE OF SERVICES THAT WILL BE PROVIDED
UNDER THE INITIATIVE, AS WELL AS THE PROCESS AND CRITERIA FOR
SELECTING THE ENTITIES THAT WILL PROVIDE THE SERVICES;
o CLARIFY THE ESTABLISHMENT, GOVERNANCE, AND MISSION OF THE
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"ENTITY", AS WELL AS THE NATURE AND SCOPE OF ITS AUTHORITY AS
A FINANCING AGENCY; AND
o CLARIFY THE USE OF THE $7 MILLION THAT WE ARE TO RECEIVE IN
THE FIRST YEAR OF THE INITIATIVE.
WHILE THE PLAN ESTABLISHES A BLUEPRINT FOR ACTION, THE SHEER
ENORMITY OF THIS UNDERTAKING NECESSARILY MAKES THIS A FLUID
PROCESS. THUS, AS IMPLEMENTATION UNFOLDS, WE EXPECT THERE TO BE
REFINEMENTS IN THE PLAN.
WE CANNOT OVERSTATE THE EXTENT TO WHICH FEDERAL SUPPORT IS CRITICAL
TO THE SUCCESS OF THE MODEL, IN THE DISTRICT AND NATIONWIDE.
O FEDERAL FUNDS ARE NEEDED TO UNDERGIRD THE EXISTING SOCIAL
SERVICE SYSTEM WITH SPECIAL SERVICES THAT ARE RESPONSIVE
TO THE UNIQUE NEEDS AND CIRCUMSTANCES OF HOMELESS
PERSONS;
O FEDERAL TECHNICAL ASSISTANCE IS NEEDED TO IDENTIFY WAYS
TO MAXIMIZE THE USE OF FEDERAL AND LOCAL FUNDS FOR
HOMELESS PROGRAMS;
O FLEXIBILITY TO USE FEDERAL FUNDS FROM ONE SOURCE TO
ADDRESS THE MULTIPLE CAUSES OF HOMELESSNESS IS CRITICAL;
AND
O AN INCREASE IN FEDERAL HOUSING SUBSIDIES IS NEEDED FOR
THE DEVELOPMENT OF TRANSITIONAL AND PERMANENT HOUSING FOR
LOW INCOME PERSONS.
THE DISTRICT GOVERNMENT IS COMMITTED TO ENDING HOMELESSNESS, BUT WE
BELIEVE THAT HOMELESSNESS IS A NATIONAL ISSUE THAT MUST BE
ADDRESSED COLLABORATIVELY BY THE FEDERAL AND LOCAL GOVERNMENTS,
NON-PROFIT AND CHARITABLE ORGANIZATIONS, THE BUSINESS AND FINANCIAL
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COMMUNITIES AND HOMELESS PERSONS. WE WELCOME THE OPPORTUNITY TO BE
THE FIRST LOCAL GOVERNMENT TO PARTICIPATE IN SUCH A COLLABORATIVE
EFFORT AND LOOK FORWARD TO WORKING WITH THE FEDERAL GOVERNMENT TO
MAKE THE CONCEPT OF "CONTINUUM OF CARE" A REALITY.
THANK YOU FOR THE OPPORTUNITY TO APPEAR BEFORE YOU TODAY. WE WOULD
BE PLEASED TO RESPOND TO ANY QUESTIONS THAT YOU MAY HAVE.
85
October 26, 1993, hearing held by the
Subcommittee on Housing and Community Development,
entitled "Interagency Council on the Homeless and the
District of Columbia Homeless Initiative"
QUESTIONS FROM CHAIRMAN HENRY B. GONZALEZ TO
MR. VINCENT C. GRAY
1. HOW MANY UNITS OF HOUSING FOR THE HOMELESS WILL BE PROVIDED
ON EITHER A SHORT TERM AND/OR LONG TERM BASIS UNDER THE
DISTRICT OF COLUMBIA HOMELESS INITIATIVE?
2. OF THE $20 MILLION THAT HAS BEEN PROMISED BY HUD, FOR THIS
INITIATIVE, WHAT PERCENTAGE OF THESE FUNDS WILL BE DEVOTED
FOR HOUSING RELATED EXPENSES VERSOS SOCIAL SERVICE RELATED
EXPENSES?
TO WHAT EXTENT IS THE FUNDING PROVIDED UNDER THIS INITIATIVE
GOING TO REPLACE EXISTING HOMELESS FUNDING FROM OTHER SOURCES?
WILL ALL OF THE FUNDING BE SUPPLEMENTAL TO THE DISTRICT'S
EXISTING EFFORTS TO ASSIST HOMELESS PERSONS?
4. I'M VERY CONCERNED ABOUT THE INVOLUNTARY REMOVAL OF HOMELESS
PERSONS "AGAINST THEIR WILL" FROM THE STREETS OF THE DISTRICT
OF COLUMBIA. THIS ISSUE WAS RAISED WHEN THE INITIATIVE WAS
FIRST ANNOUNCED.
WHAT SPECIFICALLY HAS BEEN INCLUDED IN THIS INITIATIVE THAT
WOULD CAUSE SUCH ACTIONS TO BE TAKEN BY THE DISTRICT OR ANY
OTHER ENTITY ASSOCIATED WITH THIS PROGRAM?
5. IT HAS BEEN REPORTED THAT THE DISTRICT OF COLUMBIA RECENTLY
TURNED AWAY APPROXIMATELY $1 MILLION IN EMERGENCY ASSISTANCE
FOR THE HOMELESS.
IS THIS TRUE? IF SO, WHY HAS THE DISTRICT TURNED DOWN VITALLY
NEEDED FUNDS TO ASSIST THE HOMELESS OF THE DISTRICT OF
COLUMBIA?
6. WHAT PERCENTAGE OF FUNDS OF THE $20 MILLION WILL BE USED FOR
ADMINISTRATIVE ACTIVITIES AND EXPENSES?
7. I AM CONCERNED THAT THE $2 MILLION WOULD ONLY BE USED ON A
SHORT TERM, 2 YEAR BASIS AND NOT ADDRESS THE LONG TERM NEEDS
OF THE HOMELESS.
TO WHAT EXTENT IS THE $2 MILLION DEVOTED TO ADDRESSING THE
LONG TERM SOLUTION TO END HOMELESSNESS IN THE DISTRICT OF
COLUMBIA?
CAN YOU EXPLAIN HOW THIS DISTRICT OF COLUMBIA INITIATIVE
ADDRESSES THE LONG TERM NEEDS OF THE HOMELESS?
86
October 26, 1993, hearing held by the Subcommittee on Housing and
Community Development, entitled "Interagency Council on the
Homeless and the District of Columbia Homeless Initiative"
RESPONSES FROM VINCENT C. GRAY, DIRECTOR, DISTRICT OF COLUMBIA
DEPARTMENT OF HUMAN SERVICES TO CHAIRMAN HENRY B. GONZALEZ
QUESTION ;
1. HOW MANY UNITS OF HOUSING FOR THE HOMELESS WILL BE PROVIDED ON
EITHER A SHORT TERM AND/OR LONG TERM BASIS UNDER THE DISTRICT
OF COLUMBIA HOMELESS INITIATIVE?
RESPONSE
1. For the first year of the D.C. Homeless Initiative, the goal is
to provide:
120 permanent housing units for persons with mental illness
Up to 200 transitional housing units for persons with
substance abuse problems
50 short-term housing slots for persons undergoing job
training
A minimum of 25 permanent housing units for persons with
AIDS
Initiate for second year occupancy 80 units in Single Room
Occupancy buildings
250 permanent housing units in public housing for homeless
families
50 transitional housing units for homeless families with
substance abuse problems
50 transitional or permanent housing units for families
under program still to be determined
This totals 475 housing units for single adults and 550 housing
units for families in Year 1 or a total of 1,025. The goal for
Year 2 is the same number in the same categories, for a total
of 2,050 single adults and families over two years, but the
District Government anticipates that the experience in Year 1
will significantly influence the goals which can be anticipated
in Year 2 .
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Gonzalez
Permanent housing units will be provided for those with mental
illness, using District of Columbia funds. The families going
into public housing are eligible for permanent housing, as long
as they meet the requirements for public housing occupancy.
Transitional housing units are planned for those with substance
abuse problems, requiring these persons to cover their own
housing costs after a transitional period. Transitional
housing is also required of those families in the 200
subsidized housing units because the housing money comes from
an allocation of HOME funds which may not continue over a
longer period.
Note that there are overlaps in the categories. For instance,
some of those with substance abuse problems may be also
mentally ill or have AIDS. The District of Columbia has been
awarded $7,841,000 over five years for a Shelter Plus Care
grant for homeless persons who are dually (or triply) diagnosed
with a combination of mental illness, substance abuse, or AIDS.
QUESTION ;
OF THE $20 MILLION THAT HAS BEEN PROMISED BY HUD, FOR THIS
INITIATIVE, WHAT PERCENTAGE OF THESE FUNDS WILL BE DEVOTED FOR
HOUSING RELATED EXPENSES VERSUS SOCIAL SERVICE RELATED
EXPENSES?
RESPONSE:
It is impossible to answer this question until the Memorandum
of Understanding between HUD and the Government of the District
.of Columbia is signed and an operating plan has been developed
by the Community Partnership for the Prevention of Homeless,
Inc., the entity that will receive the $20 million. Under the
District's recommended plan, D.C. Homeless Initiative funds
would be used for implementation for housing those with
substance abuse problems, for incentives to create SRO's and
other private affordable housing, for housing for persons with
AIDS, and for temporary housing for those in employment
training. Services would require a larger percentage than
housing costs, assuming that housing is provided in the
Department of Human Services' budget for mental health
services, under public housing, and with HOME funds.
The Shelter Plus Care grant will provide housing but the
services will be provided by private, non-profit vendors under
contract with the District Government, and not with D.C.
Homeless Initiative funds.
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Gonzalez
QUESTION :
3. TO WHAT EXTENT IS THE FUNDING PROVIDED UNDER THIS INITIATIVE
GOING TO REPLACE EXISTING HOMELESS FUNDING FROM OTHER SOURCES?
WILL ALL OF THE FUNDING BE SUPPLEMENTAL TO THE DISTRICT'S
EXISTING EFFORTS TO ASSIST HOMELESS PERSONS?
RESPONSE:
3. The District has conunitted to a maintenance of effort
comparable to the Fiscal Year 1994 Revised Appropriated Budget
for the Department of Human Services' Office of
Emergency Shelter and Support Services. Consequently, none of
the funding provided under the Initiative will supplant funding
provided by the District of Columbia during the operations of
the Initiative.
QUESTION ;
4. I'M VERY CONCERNED ABOUT THE INVOLUNTARY REMOVAL OF HOMELESS
PERSONS "AGAINST THEIR WILL" FROM THE STREETS OF THE DISTRICT
OF COLUMBIA. THIS ISSUE WAS RAISED WHEN THE INITIATIVE WAS
FIRST ANNOUNCED.
WHAT SPECIFICALLY HAS BEEN INCLUDED IN THIS INITIATIVE THAT
WOULD CAUSE SUCH ACTIONS TO BE TAKEN BY THE DISTRICT OR ANY
OTHER ENTITY ASSOCIATED WITH THIS PROGRAM?
RESPONSE:
4. There have been no changes in the District's involuntary
commitment law (Ervin Act) . The standard for involuntary
hospitalization remains the same.
The District of Columbia is well aware of the delicate balance
between the rights of the individual and the rights of the
community. For example, to what extent and in what locations
will persons be allowed to panhandle, whether or not they are
homeless? We are also well aware of the balance between an
individual's right to remain on the streets and society's
justifiable concern about the safety and health of an
individual who is homeless. For example, a person with mental
illness and a substance abuse problem and diabetes may choose
to remain on the street, but our case managers recognize that
his or her health is deteriorating noticeably. When is
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Gonzalez
involuntary commitment justified? That is a difficult
question. We will abide by the laws, and we have taken no
actions under the D.C. Homeless Initiative regarding
involuntary removal that we would not have taken before the
Initiative was announced.
QUESTION ;
IT HAS BEEN REPORTED THAT THE DISTRICT OF COLUMBIA RECENTLY
TURNED AWAY APPROXIMATELY $1 MILLION IN EMERGENCY ASSISTANCE
FOR THE HOMELESS.
IS THIS TRUE? IF SO, WHY HAS THE DISTRICT TURNED DOWN VITALLY
NEEDED FUNDS TO ASSIST THE HOMELESS OF THE DISTRICT OF
COLUMBIA?
RESPONSE;
In the course of litigation concerning the District's family
shelter program, plaintiffs had argued that participation in
the Emergency Assistance program required the District
government to provide shelter on demand. Plaintiffs made this
argument even though District residents voted in November,
1990, to stop the provision of shelter on demand. Therefore,
in order to ensure that the will of the people was upheld, the
government elected to withdraw from the Emergency Assistance
program. If the District had remained in the Emergency
Assistance program, and the Court agreed with plaintiffs, the
District would have been required to spend an additional $5
million. In spite of this great cost, the District would have
only earned approximately $1 million in reimbursement.
QUESTION ;
WHAT PERCENTAGE OF THE FUNDS OF THE $2 MILLION WILL BE USED
FOR ADMINISTRATIVE ACTIVITIES AND EXPENSES?
RESPONSE:
As the Department of Housing and Urban Development (HUD)
and the District of Columbia government are currently engaged
in final negotiation of the terms of a Memorandum of
Understanding that will govern implementation of the D.C.
Homeless Initiative, this question cannot be answered, at this
time.
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Gonzalez
QUESTION ;
7. I AM CONCERNED THAT THE $20 MILLION WOULD ONLY BE USED ON A
SHORT TERM, 2 YEAR BASIS AND NOT ADDRESS THE LONG TERM NEEDS OF
THE HOMELESS.
TO WHAT EXTENT IS THE $20 MILLION DEVOTED TO ADDRESSING THE
LONG TERM SOLUTION TO END HOMELESSNESS IN THE DISTRICT OF
COLUMBIA?
CAN YOU EXPLAIN HOW THIS DISTRICT OF COLUMBIA INITIATIVE
ADDRESSES THE LONG TERM NEEDS OF THE HOMELESS?
RESPONSE;
7. The goal of the D.C. Homeless Initiative is to shift the
focus from provision of emergency or overnight care
towards long-term commitments and programs to prevent
homelessness.
The $20 million will be used to create a "continuum of care
model" that consists of comprehensive outreach and assessment,
transitional rehabilitative services, and supportive permanent
housing designed around the specific, individual needs of
homeless families and individuals. The system includes
strengthening efforts to prevent homelessness.
A part of the strategy we have been working to develop in the
Interagency Homeless Coordinating Counci (lAHCC), which
includes shelter providers as well as persons who are homeless,
is what is to happen after the specified three year period of
the D.C. Homeless Initiative. We are also looking to leverage
additional dollars to allow us to deal more effectively with
issues such as prevention and follow-up services.
91
QUESTIONS FOR
VINCENT GRAY, Director, Department of Human Services and
Chairperson, District of Columbia Interagency Homeless
Coordinating Council
Hearing on the "Interagency Council on the Homeless and the District of Columbia
Homeless Initiative."
Tuesday. October 26, 1993
Submitted by Representative Roukema
1. The D.C. Homeless Initiative will be administered and implemented by a new entity.
What prevents this entity becoming just another layer of D.C. bureaucracy?
The entity has been described as a public/private entity which will embrace
entrepreneurial principles. Of the seven comers identified in the Initiative, what private
organizations, nonprofits, and community organizations have been tapped to participate
as members of this entity?
Will the entity have the authority to monitor and oversee private contractors to
ensure the contract is being carried-out and services are being provided to homeless
families and individuals?
2. Currently, both the Department of Public and Assisted Housing and the Department
of Human Services are operating under court orders because they have failed to provide
essential services. Do these departments have the capacity to carry out the essential role
they have been asked to play in the initiative?
For example, does the Office of Emergency Services know how many facilities
provide for homeless individuals and families?
How many beds exist for homeless people?
What types of services are provided at these facilities?
What is the cost of these services?
Do you know whether the private organizations currently under contract to
provide services for homeless families are actually doing so? For example,
explain the Anchor contract provisions. Is the contractor meeting its obligations
under the contract?
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3. The Initiative states that the benchmarks for measuring success will be whether 2050
people are provided with transitional housing and whether the $20 million is spent over
two years. The Initiative, however, plans on offering in-depth, comprehensive services.
Shouldn't the performance of the service providers be evaluated as well?
4. On page ten of your testimony you indicate that HUD, the Interagency Council and
the District of Columbia are studying the feasibility of using a portion of the $20 million
to leverage private capital to finance low-cost construction. Why can't existing housing
programs be used for this purpose?
For example, this committee just authorized a new pension fund demonstration
program. Moreover, I understand that the D.C. government has vast number of
vacant public housing units which also could be utilized.
5. You indicate that over the past five years the District government has spent $100
million in local and federal funds to meet the needs of homeless families and
individuals. This is a large sum of money. Why are there still chronic problems with
homelessness in the District?
93
RESPONSES FROM VINCENT C. GRAY, DIRECTOR, DISTRICT OF COLUMBIA
DEPARTMENT OF HUMAN SERVICES, TO REPRESENTATIVE ROUKEMA
QUESTION ;
lA. THE D.C. HOMELESS INITIATIVE WILL BE ADMINISTERED AND
IMPLEMENTED BY A NEW ENTITY. WHAT PREVENTS THIS ENTITY
BECOMING JUST ANOTHER LAYER OF D.C. BUREAUCRACY?
RESPONSE ;
lA. The Board structure of the proposed entity (The Community
Partnership for the Prevention of Homelessness, Inc.) is
currently comprised of four interest groups who are
represented equally. Only one quarter of the Governing Board
of the proposed Entity is District government representation.
The corporate sector, non-profit service providers and
community representatives, therefore, each has equal
representation. The reason an entity outside of the District
Government was chosen was to be able to overcome any potential
barriers associated with government implementation of the
Initiative.
QUESTION ;
IB. THE ENTITY HAS BEEN DESCRIBED AS A PUBLIC/PRIVATE ENTITY WHICH
WILL EMBRACE ENTREPRENEURIAL PRINCIPLES. OF THE SEVEN CORNERS
IDENTIFIED IN THE INITIATIVE, WHAT PRIVATE ORGANIZATIONS,
NONPROFITS, AND COMMUNITY ORGANIZATIONS HAVE BEEN TAPPED TO
PARTICIPATE AS MEMBERS OF THIS ENTITY?
RESPONSE;
IB. While no organizations have been selected at this point,
positive input has been received from the Washington Regional
Association of Grant Makers, the Coalition of Non-Prof it
Housing Developers, the Coalition of Homeless and Housing
Organizations, Advisory Neighborhood Commission, Civic and
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Roukema
Citizens Associations, the Council of the District of
Columbia, the Greater Washington Research Center, and the
Council of Churches, to mention a few.
The proposed Entity: The Community Partnership for the
Prevention of Homelessness, has been working side by side with
community residents, homeless providers and neighborhoods of
the District since 1989.
QUESTION ;
IC. WILL THE ENTITY HAVE THE AUTHORITY TO MONITOR AND OVERSEE
PRIVATE CONTRACTORS TO ENSURE THE CONTRACT IS BEING CARRIED-
OUT AND SERVICES ARE BEING PROVIDED TO HOMELESS FAMILIES AND
INDIVIDUALS?
RESPONSE ;
IC. Among the functions to be assigned to the Entity are the
contracting for services and the related planning, monitoring
and evaluation.
QUESTION:
2A. CURRENTLY, BOTH THE DEPARTMENT OF PUBLIC AND ASSISTED HOUSING
AND THE DEPARTMENT OF HUMAN SERVICES ARE OPERATING UNDER COURT
ORDERS BECAUSED THEY HAVE FAILED TO PROVIDE ESSENTIAL
SERVICES. DO THESE DEPARTMENTS HAVE THE CAPACITY TO CARRY
OUT THE ESSENTIAL ROLE THEY HAVE BEEN ASKED TO PLAY IN THE
INITIATIVE?
RESPONSE ;
2A. Yes. The Department of Public and Assisted Housing and the
Department of Human Services are committed to carry out
the essential roles they have been asked to play in the
implementation of the D.C. Homeless Initiative. Furthermore,
it should be noted that the Department of Human Services
currently is not operating under any court orders relating to
the failure to provide essential services to people who are
homeless. The Atchison and Fountain decrees were vacated in
the initial year of the Kelly Administration.
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Roukema
QUESTION :
2B. FOR EXAMPLE, DOES THE OFFICE OF EMERGENCY SERVICES KNOW
HOW MANY FACILITIES PROVIDE FOR HOMELESS INDIVIDUALS AND
FAMILIES?
RESPONSE ;
2B. The Office of Emergency Shelter and Support Services
(OESSS) procures the following shelter facilities for
homeless individuals and families:
202 slots for homeless women
1,074 slots for homeless men
28 slots for battered women and dependents
187 apartments for homeless families
- 27 5 slots for homeless men and women during hypothermia
season
50 hotel rooms and meals for homeless families
250 case management slots for homeless families
provides 300 temporary emergency apartments for
families who are homeless through the Department of
Public and Assisted Housing
QUESTION :
2C. HOW MANY BEDS EXIST FOR HOMELESS PEOPLE?
RESPONSE;
2C. See response above for 2B.
QUESTION ;
2D. WHAT TYPES OF SERVICES ARE PROVIDED AT THESE FACILITIES?
RESPONSE ;
2D. The types of services provided at these facilities
include:
- housing and shelter
- assessment/case planning
housing counseling and referrals
employment counseling and referrals
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Roukema
- parenting training
- crisis intervention
life skills training
medical assistance
referrals for medical assistance
referrals for legal assistance
child care referrals
- escrow savings
- substance abuse treatment services or referral
referrals for domestic violence
implementation of a Hypothermia Hotline and program
(November 1 through March 31)
QUESTION ;
2E. WHAT IS THE COST OF THESE SERVICES?
RESPONSE;
2E. The Department of Human Services has budgeted $14.8
million in Fiscal Year 1994 for these services.
QUESTION ;
2F. DO YOU KNOW WHETHER THE PRIVATE ORGANIZATIONS CURRENTLY
UNDER CONTRACT TO PROVIDE SERVICES FOR HOMELESS FAMILIES
ARE ACTUALLY DOING SO?
RESPONSE;
2F. Yes. The Department of Human Services regularly monitors
vendors under contract to ensure that services are being
provided in an appropriate manner and in accordance with
the contract.
QUESTION ;
2G. FOR EXAMPLE, EXPLAIN THE ANCHOR CONTRACT PROVISIONS. IS
THE CONTRACTOR MEETING ITS OBLIGATIONS UNDER THE CONTRACT?
RESPONSE:
2G. Anchor Development has the capacity to deliver 300
temporary apartments for homeless families. This contract
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Roukema
authorizes maintenance and repair; security guard
services; property management services; and, furniture for
300 homeless families.
QUESTION ;
3. THE INITIATIVE STATES THAT THE BENCHMARKS FOR MEASURING
SUCCESS WILL BE WHETHER 2050 PEOPLE ARE PROVIDED WITH
TRANSITIONAL HOUSING AND WHETHER THE $20 MILLION IS SPENT
OVER TWO YEARS. THE INITIATIVE, HOWEVER, PLANS ON
OFFERING IN-DEPTH, COMPREHENSIVE SERVICES. SHOULDN'T THE
PERFORMANCE OF THE SERVICE PROVIDERS BE EVALUATED, AS
WELL?
RESPONSE;
3. Yes. All service providers will be issued contracts or
grants. Their performance will be evaluated based on
their accomplishment of the work plans and deliverables
outlined in their contracts or grants. The $20 million is
to be spent over three years instead of two years.
QUESTION ;
ON PAGE 10 OF YOUR TESTIMONY, YOU INDICATE THAT HUD, THE
INTERAGENCY COUNCIL AND THE DISTRICT OF COLUMBIA ARE
STUDYING THE FEASIBILITY OF USING A PORTION OF THE $20
MILLION TO LEVERAGE PRIVATE CAPITAL TO FINANCE LOW-COST
CONSTRUCTION. WHY CAN'T EXISTING HOUSING PROGRAMS BE USED
FOR THIS PURPOSE?
FOR EXAMPLE, THIS COMMITTEE JUST AUTHORIZED A NEW PENSION
FUND DEMONSTRATION PROGRAM. MOREOVER, I UNDERSTAND THAT
THE D.C. GOVERNMENT HAS VAST NUMBERS OF VACANT PUBLIC
HOUSING UNITS WHICH ALSO COULD BE UTILIZED.
RESPONSE ;
The District has not made a final selection of any one
mechanism to create the needed housing for homeless
persons as called for in the D.C. Homeless Initiative
plan. We are willing to explore whatever makes sense and
examine the least costly way of doing it. The notion of
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doing pension fund financed housing is a relative
newcomer to the market place. If it makes sense to do
that, clearly we will do that. But, we must examine all
of the possible options to maximize housing opportunities
for individuals and families who are homeless. When we
have examined our options, we will select those that make
sense for the District's own unique needs.
QUESTION ;
YOU INDICATE THAT OVER THE PAST FIVE YEARS THE DISTRICT
G0VERN^4ENT HAS SPENT $100 MILLION IN LOCAL AND FEDERAL
FUNDS TO MEET THE NEEDS OF HOMELESS FAMILIES AND
INDIVIDUALS. THIS IS A LARGE SUM OF MONEY. WHY ARE THERE
STILL CHRONIC PROBLEMS WITH HOMELESSNESS IN THE DISTRICT?
RESPONSE:
Homelessness is one of the most pressing challenges
facing our nation. The District, along with other major
American cities, has made extraordinary efforts to
provide shelter to the homeless, but it has not solved the
problem. Homelessness is not a condition, but an outcome.
The causes of homelessness are as diverse as the full
range of social and economic problems confronting the most
impoverished among us. The unrelenting Federal cutbacks
in housing over the past 12 years have made a bad
situation worse.
The continued presence of homelessness is difficult for
many to understand in light of the fact that national
spending for the homeless has been increasing
dramatically. We believe that we have been following
incomplete approaches to address the homeless problem.
Shelter alone is not the answer to homelessness. An
honest assessment must be made of the needs of the
homeless; and, with that determination, the system must
address those needs. We need to break with the past and
adopt expanded approaches that address the real problem.
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Our D.C. Homeless Initiative, developed in consultation
with partners in the private and not-for profit sectors,
the Federal and District governments, is that response.
It will allow us to move beyond providing emergency
shelter to working with homeless families and individuals
to assist their development of independent living skills
that should facilitate their transition from life on the
street and in shelters to independent living and other
appropriate living arrangements.
We are challenged by the work to be done. The District
has a demand for affordable housing that far exceeds the
availability of resources. Almost 1,000 homeless persons
or families are on the waiting list for public housing and
others, on the streets or in shelters, have not applied,
or, because of health, require supportive housing rather
than public housing.
Existing housing programs are being extensively used in
the District, but funds are limited. Last August, the
District applied for 600 Section 8 certificates and
vouchers but was awarded only 25. The District's
successful application for Shelter Plus Care will provide
rental subsidies for 222 homeless persons and families,
but an additional amount is needed.
Many of HUD's existing housing programs work most
efficiently when the tenant has a sufficient income to pay
a portion of the capital costs, as well as the operating
expenses for the property. Families with incomes of
$10,000 to $15,000 need subsidies but can pay an important
part of the rental costs themselves. Homeless families
and individuals, on the other hand, often have incomes of
less than $5,000 a year, plus food stamps. The amount of
income that a homeless person can pay for rent barely
covers the operating cost and covers none of the capital
costs.
A limited amount of Initiative funds will be used to
provide leverage for truly low-cost housing, such as
Single Room Occupancy buildings. As a rule, non-profits
will be rehabilitating existing buildings. Construction
from the ground up is unlikely because of the cost.
100
HENRY B GONZALEZ
20TM DlSTHiCf . t«*S
24 13 n«'duR-< HOUSE Office BuiLOtNC
Was.ingion DC 20515-4320
202-225-3236
HOME OFFICE
B-124 FEOEItAi BuiLOihC
727 E OUBANCO Stb^et
S«N Amtonio. TX 78206-1286
210-229-6195
COMMITTEE
BANKING FINANCE AND
URBAN AFFAIRS
Congre£f£( of tfic ?Hniteb ^tate£(
^ou£(e of iReprcgentatibeg
aaafitjington, ffiC 20515-4320
SueCOMMiTTEES
HOUSING AND COWMUNITV DiVELOPMfNT
Consumer Cncoit and Insurance
International Development Finance,
Traoe, and Monetary Policy
September 21, 199 3 uleref
B04BHSG
stw
The Honorable Henry Cisneros
Secretary
U.S. Department of Housing and Urban Development
4 51 Seventh St., S.W.
Washington, D.C. 20410-0001
Dear Mr. Secretary:
The front page story in this morning's Washington Post "HUD Targets
Homeless in District", by DeNeen L. Brown, reports your allocation of
$20 million committed to the District for a "pilot program".
This is good news in view of the District's chaotic state of affairs
insofar as "homelessness" is concerned. But the story also contains
rather ominous references to "possible involuntary commitment of some
mentally ill homeless people and the use of police officers to move
homeless people off the streets"; "The D.C. Initiative will call for a
sustained effort to get people off the streets and into appropriate
service programs"; and, further, "Before the program could begin, the
D.C. Council would have to approve a new homeless agency to carry it
out." Some of this - enough, let me say - is most repugnant to me. You
are envisioning an institutionalization of bureaucracy and police state
or garrison environment that has never been the Congressional intent.
As a matter of fact, I'll remind you of the Housing Subcommittee hearing
held on Friday, April 23rd at the 2nd Street Shelter, which you and
others were so gracious to attend, which clearly revealed where much
could be done to reduce the "emergency shelter" population by just
coordinating and synchronizing the existing assisted housing programs.
If you - and others - had remained to the completion of the hearing
(about 3:45pm) you would have found out the shelter provides only one
meal a day; it has persons who are there because they could not find
accommodations in the District's elderly housing; and many who have been
at this "emergency" shelter for as long as two to four years. Neverthe-
less, please be so kind as to have an appropriate HUD staffer meet with
the Subcommittee staff to provide the details as soon as possible.
Sincerely
[enry w. <
'J^t^
Henry
Gonzalez
cc:
Member of Congress
John Vanlencia, Staff Director, Housing Subcommittee
Enclosure
101
WAS.'-NGTON POST, Tuesday, Sept, 21, 1993, p,a1
HUD Targets
Homelessness
In District
$20 Million Committed
lb Pilot Program in City
By DeNeen L Brown
The federal government promised
yesterday to give the District $20 mil-
lion to help eliminate homelessness by
providing permanent housing, medical
treatment and job training while, in some
cases, using police officers to "encourage
reluctant homeless persons hving on the
streets' to go to shelters.
Officials of the Department of Housing
and Urban Development said the $20
million would be given to the District,
with no strings attached, over the nert
two years to finance the D.C. Homeless
Initiative. The Distnct spent $23.6 mil-
bon on shelter programs in the last fiscal
year, including $1.4 million in federal
money.
HUD Secretary Henry G. Cisneros
said the mitiative, designed by federal
officials, D.C. officials and advocates for
the homeless, would shift the focus of
the city's efforts from providing emer-
gency shelter to preventing needy peo-
ple from becoming homeless and helping
others escape homelessness permanent-
ly. By 1995, more than 2.050 individuals
and families in the District would receive
permanent housing, treatment or job
training, according to the plan.
The initiative won some praise from
advocates for the homeless, but they
questioned whether the funding is ade-
quate and expressed concern about pro-
visions for the possible involuntary com-
mitment of some mentaUy ill homeless
people and the use of pohce officers to
move homeless people off the streets.
The D.C. Initiative will call for a sus-
tained effort to get people off the streets
and into appropriate service programs,
returning the District's parks, streets,
and other public areas to their intended
use," the implementation plan said. "With
transitional services available, it will no
longer be necessary for homeless per-
sons to live in pubUc spaces."
Before the program could begin, the
D.C. Council would have to approve i
new homeless agency to carry it out.
At a news conference at HUD head-
quarters yesterday, Cisneros said that if
the program worked in the District, it
would become a model f6r use in other
cities across the country that are dealing
with thousands of people on their
streets.
"Why [start with] the District? Be-
cause this IS the nation's capital," Cis-
neros said. "American people look to the
Distnct. . . . When homelessness exists
at this level in the nation's capital, it de-
serves special attention."
Cisneros said he went out one
night recently and found a pregnant
woman sleeping on the lawn of the
Justice Department, which he said
was a symbol of injustice. He saw
another woman sleeping on the
steps of the Treasury Department,
i which he said was ironic because
the building is a symbol of the na-
tion's wealth.
He said that in the next 60 to 90
days, he would begin to identify oth-
er cities where the program might
be tried.
", The program calls for D.C. May-
^ or Sharon Pratt Kelly to work with
! the D.C. Council to create a "public-
private entity" that would coordi-
nate and finance the city's new sys-
tem to help the homeless. The
agency would contract with non-
profit groups to provide housing
services and disburse money.
HUD would give the District $20
milEOr^ three payments over two
years without requiring the city to
provide shelter for everyone who
seeks it. The District, which the
mayor said has no money to match
the federal dollars, would not be re-
quired to contribute money to the
initiative, Cisneros said. The pro-
gram, he said, should be running by
January.
Vada Manager, the mayor's
press secretary, said Kelly supports
the intiative. '^he has said the fund-
ing would be enough to help us
make some progress in this area,"
Manager said,
o^, "There is a lot of potential for
good things and a lot of potential for
damaging things," said Joan Alker,
assistant director of the National
Coalition for the Homeless. "What
concerns me is this: They say in
[the implementation plan] if out-
reach teams requested, they may
have police come and encourage re-
luctant homeless persons living on
the street to accompany a team to
an assessment center."
Carol Fennelly, a member of the
Community for Creative Non-
violence, said the report is a good
start and is different from reports
that were not backed up with mon-
ey.
But Fennelly also said she is con-
cerned about moving homeless peo-
ple off the streets. There are cer-
tain activities that are unconstitu-
tional and illegal. We don't support
the entire report," she said, refer-
ring to the implementation plan.
"Outreach workers are needed, not
police officers, to take people where
they need to go."
Maria Foscarinis, director of the
National Law Center on Homeless-
ness and Poverty, said she believes
that the initiative's goals are good
but the measures outlined to meet
those goals are inadequate.
Take the proposal to create 50
job-training slots in the first year,"
Foscarinis said. "That is a terribly
meager number and clearly inad-
equate to meet the need. . . . There
are 10 to 15 thousand homeless
people in the District. A conserva-
tive estimate is 25 percent now
work. So 50 slots is just a drop in
the bucket."
102
BOSTON PUBLIC LIBRARY
3 9999 05981 828 4
Congre£(£e of tfje Winitth i^tatti
J^ouit of EepreKentatibeK
Obuiiingtoiu BC 20515
October 21, 1993
Dear Member of the Interagency Council on the Homeless:
As Members of the Speaker's Task Force on Homelessness, we are
writing to encourage you to fully cooperate, support and maintain an
interagency effort in the form of a homeless council, a task force
or an otherwise appropriate body until such time as a council can be
redesigned and funding assured.
We supported the continuation of funding for the Interagency Council
on the Homeless (ICH) and recognize that the termination of explicit
funding for the ICH, as authorized by the Stewart B. McKinney Act
since 1987, could be a set-back for federal programs for the
homeless and for the federal plan that you have been ordered by the
President to provide.
We would like to recommend, to the extent you are able, that you
detail and/or designate staff for an interagency effort to promote
continued communication and coordination between federal agencies
and departments. Notwithstanding the VA/HUD Conference Agreement's
directive to HUD to assume the responsibilities of the ICH, a group
of agency detailees/designees so formulated under the auspices of or
at the direction of the Executive Office of the President would
assure a higher priority for the needed interagency efforts.
We look forward to a continued dialogue on this matter and to
working with you in the future on federal policies to prevent
homelessness and assist persons in our country who are homeless.
Sincerely,
t£^k^— /I
fjU>-lJt f^-
i^
103
'3fis^im'ica Cfganiiatim
A SCHOLARSHIP PROGRAM
October 25, 1993
The Honorable Henry B. Gonzalez
Chairman
Subcommittee on Housing and Community Development of
the Committee on Banking, Finance and Urban Affairs
United States House of Representatives
2413 Rayburn House Office Building
Washington, D.C. 20515
Attn: John Valencia, Staff Director
Dear Chairman Gonzalez:
It was with great interest that I learned of Tuesday's hearing regarding the
Interagency Council on the Homeless and the District of Columbia s Homeless
Initiative. Since being selected as Miss America 1994 in September, I have
been following both subjects closely, while traveling throughout this country
speaking out on behalf of the plight of the homeless.
As you consider the testimony and review the documents that will be submitted
for your subcommittee review on Tuesday, I urge you to consider the needs of
homeless families and children in America, the most silent of all homeless
victims.
As I'm sure you're aware, homeless families and children are the fastest
growing segment of the homeless population in our country, currently
accounting for 32% of all homeless on our streets. Yet the many short-term
and emergency services to feed, clothe and house them often overlook their
most basic needs. Consider that 41% of shelter operators in our country
report that thev must break families apa rt in order to keep them within the
shelter systenT And, 50% of these families' children (60% of whom are under
age 6) oossess documented p sychosocial problems.
I urge you and the members of your subcommittee to advocate long-term
solutions that prevent homelessness in our country, with a special focus on
the mothers, fathers and children who desperately want to break the cycle they
exist in today.
My very best personal regards for your continued success.
Sincerely yours
.ui/^^"^-^
Kimberly C(7Aiken
Miss Americi 1994
cc: The Honorable James Clyburn
P.O. Box 119 Atlantic CHy, NJ 06404 (609) 345-7571 • FAX (609) 347-6079 ,
E«iablleh«d 1921
o
73-385 (108)
ISBN 0-16-044223-0
9 780160"44223(
90000
